Blueprint for the future of migratory birds: migratory bird program strategic plan 2004-2014

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A Blueprint for the Future of
Migratory Birds
Migratory Bird Program
Strategic Plan 2004-2014
U.S. Fish and Wildlife Service
Message from the Assistant Director
for Migratory Birds and State Programs
The Migratory Bird Program of the U.S. Fish and Wildlife Service enjoys a rich and successful tradition.
It has been instrumental, on its own and with partners, in delivering bird conservation throughout the
hemisphere for several decades. It is a critical hub through which much is accomplished.
This strategic plan outlines the future direction of the Migratory Bird Program and how it will continue to
contribute to bird conservation in North America and around the world. Like a “blueprint” it lays out the
goals and design for a promising future for migratory birds.
This “blueprint” reflects the collective wisdom of many people and groups that care deeply about birds
and their habitats. Birds are indicators of the health and quality of our environment and are enjoyed by a
large proportion of our citizens. It is critically important for us to better understand the dynamics of those
bird populations and habitats that are in trouble and then take actions to intervene strategically and
effectively whenever we can. And it is also important to support actions to keep “common birds
common.”
Clearly, the U.S. Fish and Wildlife Service alone cannot achieve the conservation of migratory birds — it
will take the collective and coordinated efforts of thousands of partner organizations and citizens to do
this. Birds are everywhere and we all have a responsibility to act on their behalf. As directed by
international treaties and domestic legislation, the United States government and its people have called
upon the Service to serve as a leader, a catalyst, and a facilitator of local, regional, national, and international
partnerships to protect, restore, and manage all native migratory birds for future generations. This plan
provides the structure and framework to guide the Service in this all- important effort.
We will use this strategic plan as a guidepost for future funding and policy decisions; however, this plan
is both dynamic and evolutionary. We will revise it periodically, with input from our partners, to reflect
lessons learned from both our successes and our failures. And we will hold ourselves accountable for
results which will add up to a better future for migratory birds and their habitats throughout the
hemisphere and beyond.
As you read this plan, please consider how you can contribute to the Vision, Priorities, Goals, and
Strategies of the “blueprint.” It will take all of us to make it happen. And the beneficiarie s will be
future generations of citizens who will continue to hear birds singing in the morning; who will delight in
seeing a bird in their backyard or along a nature trail; or who will enjoy connecting with nature through a
hunting experience.
Let’s work together to give birds, and people, a promising future.
Paul Schmidt
Assistant Director for Migratory Birds and State Programs
U.S. Fish and Wildlife Service
Table of Contents
I. Introduction………………………………………………………………………1
II. Migratory Bird Program Direction...………………………………………........4
A. Mission of the Service for Migratory Birds……………………………. 4
B. Vision of the Migratory Bird Program ………………………………5
C. Operating Principles……………………………………………………. 5
D. Program Priorities……………………………………………………....6
E. Program Goals…………………………………………………………...7
III. Implementation Strategies……………………………………………………...8
A. Population Monitoring, Assessment, and Management………………...8
B. Habitat Conservation…………………………………………………… 10
C. Permits and Regulations ……………………………………………....11
D. Consultation, Cooperation, and Communication………………………. 12
E. Recreation……………………………………………………………….14
IV. Acknowledgements………………………………………………………….....15
V. Appendices……………………………………………………………………...16
Appendix 1: Organization and Budget Structure of the Migratory Bird Program
Appendix 2: Public Comment Process and Evolution of the Strategic Plan
Appendix 3: Primary International Conventions and Major Domestic Legislation
Appendix 4: Birds of Management Concern
Appendix 5: Department of the Interior Strategic Plan and GPRA goals
Appendix 6: Summary of the Director’s Order for Migratory Bird Conservation
Appendix 7: Leaving a Lasting Legacy: Permits as a Conservation Tool
Bob Ballou
Propelled by an ancient faith deep within their genes, billions of birds
hurdle the globe each season...They are not residents of any single place
but of the whole, and their continued survival rests almost entirely
within our hands.
Scott Weidensaul
Photos on front cover: Top row: Lesser Scaup, Dave Menke; Prairie Warbler, Steve Maslowski;
Middle row: Hunters, Megan Durham U.S. Fish and Wildlife Service; Earth, NASA/U.S.
Fish and Wildlife Service; Birdwatcher, Steve Lewis
Bottom row: Red-footed Booby, Karen Hollingsworth; Bar-tailed Godwit, Tim Bowman
Photo on back cover: Great Egret in tree, Rob Miller
Illustrations by Bob Hines
1
I. Introduction
Migratory Birds: A Federal Trust Resource
The seasonal ebb and flow of migratory birds is one
of the most complex and compelling dramas in the
natural world. Driven by a genetic memory millions
of years in the making, these animals embark twice
each year on long-distance journeys between their
breeding areas and wintering grounds. Their travels
traverse states, landscapes, and oceans throughout
the hemispheres linking the countries, peoples, and
ecosystems they visit. The conservation and
management of animals capable of such impressive
mobility requires strong federal leadership to foster
effective partnerships among the many nations,
states, provinces, tribes and organizations that are
woven together by the flight paths of these
remarkable species.
The U.S. Fish and Wildlife Service (Service) is the
principal federal agency charged with protecting
and enhancing the populations and habitats of more
than 800 species of migratory birds that spend all or
part of their lives in the United States. The Service
is committed to undertaking an unprecedented level
of cooperation and coordination to protect and
conserve these international treasures.
Birds and People
Because of their ubiquitous and conspicuous
presence, migratory birds symbolize America’s
wildlife experience. Birds enrich human lives in
innumerable ways and the loss of bird populations
would immeasurably diminish the quality of life for
a large segment of the American public. Birds have
intrinsic value to people as threads in the earth’s
ecological tapestry, as pollinators, predators, and
prey. Birds are also actively appreciated and
enjoyed by millions of people throughout the
country.
Nearly 82 million residents of the United States -
39 percent of the adult population - participate in
wildlife-related activities, and 64 million of them
pursue bird-related recreation, such as
birdwatching, backyard bird feeding, hunting, and
photography. These citizens substantially contribute
to local economies throughout the country by
spending nearly $40 billion annually on these
pursuits. Experiences range from an annual
Migratory birds are indeed a source of
wonder and inspiration. They weave the
nations of the globe together as
neighbors.
John Turner
The Arctic tern flies over 20,000 miles (35,000 km) every year –
roughly the circumference of the Earth – from its arctic tundra
breeding grounds via the coast of Africa to Antarctica and back
again. It is declining at the southern edge of its breeding range
on the Atlantic Coast. /Dave Menke
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The human race is challenged more than
ever before to demonstrate our mastery,
not over nature but of ourselves.
Rachel Carson
The Golden-winged Warbler breeds in Ontario and the northern
United States and overwinters in Central America and northern
South America. It is among a suite of early successional forest
species that have shown some of the greatest declines of any
landbird habitat group. /Steve Maslowski
duck-hunting trip to enjoying a chickadee at a
backyard feeder to watching a pair of red-tailed
hawks from a tractor seat. In addition, more than
13,000 subsistence hunters have a long and rich
cultural tradition of harvesting birds in rural Alaska.
These citizens have every expectation that their
children, grandchildren, and great-grandchildren
will be able to experience the same wonder and
enjoyment of birds in their natural habitats. The
Service recognizes that migratory bird conservation
and management is ultimately for the benefit of
future generations of birds and people, too.
The Challenges of Today
Compared to a century ago, society today faces a
more complex set of environmental problems that
occur over the entire ranges of migratory birds.
Habitat loss and degradation from a burgeoning
human population and direct bird mortality
attributable to a host of human-caused factors are
redefining the challenges of migratory bird
conservation in the twenty-first century. Declines in
abundance of many landbird, shorebird, and
waterbird populations, coupled with exponential
growth of some goose populations , are indicative of
ecosystems that have been highly altered.
Reductions in habitat quantity and quality, the
primary causes of negative population trends in
many species, are exacerbated by the direct loss of
bird life from an array of external environmental
hazards. Despite the banning of DDT, which
resulted from Rachel Carson’s far-sighted warning
of a “silent spring,” pesticides and other
contaminants continue to poison birds. Numerous
other factors such as high predator populations in
human-altered ecosystems, invasive species,
collisions with human-made structures, and disease
outbreaks collectively cause significant migratory
bird mortality. Global warming and the demand for
water, particularly in the West, are of considerable
concern; however their specific effects on bird
populations and habitats are as yet unknown.
Birds are the ultimate indicator of environmental
quality. Clean air, clean water, and abundant,
diverse habitats are essential for birds to continue to
survive and flourish. Without a healthy
environment, bird populations will diminish and
species will disappear, along with the quality of life
for people on this planet.
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Meeting the Challenges
For more than a century, the Service and its
predecessors ha ve endeavored to achieve lasting
conservation of migratory birds. The Service’s
efforts have resulted, for example, in the creation of
more than 540 national wildlife refuges and wetland
management districts as havens for waterfowl,
colonial waterbirds , seabirds, shorebirds and
landbirds. The Service developed and continues to
carry out the longest operating and most
comprehensive survey of animal abundance, the
Aerial Waterfowl Breeding Ground Population and
Habitat Survey. The Service also guided the
recovery of endangered species such as the
peregrine falcon and brown pelican. In addition, the
Service administers two premier continental
partnership-based conservation efforts, the North
American Waterfowl Management Plan and the
North American Wetlands Conservation Act.
Through these accomplishments the Service has left
a legacy of leadership in twentieth century
migratory bird conservation. However, despite
these and other successes, the Service now faces a
host of challenges to meet the expectations of
growing constituencies that often have conflicting
priorities for the conservation and management of
migratory birds and their habitats.
To surmount the escalating challenges of this
century and meet public expectations for migratory
bird conservation and management, the Service
needs a clear, well-defined blueprint to guide its
actions over the next decade. This strategic plan is
designed to meet that need over the ten-year period
from 2004-2014. Its purpose is to direct the efforts
of those Service offices that administer the
Migratory Bird Program, including the Office of
Migratory Birds and State Programs through the
Washington Office Divisions of Migratory Bird
Management and Bird Habitat Conservation, seven
Regional Migratory Bird and Joint Venture
Program Offices, and associated field stations (see
Appendix 1).
To develop this strategic plan, the Migratory Bird
Program sought the counsel and wisdom of its
partners during a two-month consultation in the fall
of 2003 and a Migratory Bird Conservation Forum
in January 2004 (see Appendix 2). This plan sets a
course for the Service to engage existing and new
partners in a comprehensive approach that
coordinates and integrates partners’ efforts across
The future belongs to those who believe
in the beauty of their dreams.
Eleanor Roosevelt
Experiencing long-term population declines, the Northern Pintail
breeds throughout most of Alaska and Canada southward into
the mid-western United States. It over-winters throughout most
of the United States south through Mexico to northern South
America. /Dave Menke
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The U.S. Fish and Wildlife Service's
mission is, working with others, to
conserve, protect and enhance fish,
wildlife, and plants and their habitats
for the continuing benefit of the
American people.
The Marbled Godwit breeds primarily in the grasslands of the
northern Great Plains and winters in large numbers along the
coast of southern California and western Mexico. It is one of
many grassland breeders threatened by habitat degradation.
/Karen Hollingsworth
geographic scales, taxonomic groups, shared
habitats and landscapes, and human cultural
experiences. The Migratory Bird Program will
update this plan in 2008 based on scientific and
technical advances, environmental changes, and
results achieved.
Every three years, beginning in Fiscal Year 2005,
the Migratory Bird Program will develop action
plans that describe those specific priority tasks that
it will undertake in the short-term to accomplish the
long-term goals of this plan. The Service’s seven
Regional Offices and Washington Office will play
important role s in carrying out these actions as well
as coordinating and collaborating with partners
within and outside the Service. Working with other
Service programs, public and private organizations,
and individuals is essential to secure a future for
migratory birds. State wildlife agencies play special
roles by working with the Service to assume co-management
responsibilities for migratory birds, in
addition to managing the resident game bird species
which have been entrusted to their care.
II. Migratory Bird Program
Direction
This section presents the overall vision for the
Migratory Bird Program which is firmly grounded
in the mission of the Service. The vision is followed
by a pair of operating principles which underpin the
administration of Migratory Bird Program.
Following the operating principles are sets of
priorities and goals that break down the vision into
specific components. The Migratory Bird Program
will work to achieve these priorities and goals using
implementation strategies in five areas of
responsibility, presented in the third section of this
plan.
A. Mission of the Service for Migratory
Birds
The U.S. Fish and Wildlife Service has the legal
mandate and the trust responsibility to maintain
healthy migratory bird populations for the benefit of
the American public. The Service is authorized by
more than 25 primary conventions, treaties, and
laws to ensure the conservation of more than 800
species of migratory birds and their habitats (see
Appendix 3). Many of the treaties extend beyond
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the borders of the United States. The Service works
with many foreign governments, state and other
federal agencies, tribes, non-profit organizations,
academic institutions, industry, and private
individuals, both within the United States and
abroad, to meet these mandates.
B. Vision of the Migratory Bird Program
Through careful management built on
solid science and diverse partnerships,
the Service and its partners restore and
sustain the epic sweep of bird migration
and the natural systems on which it
depends — fostering a world in which
bird populations continue to fulfill their
ecological roles while lifting the human
spirit and enriching human lives in
infinite ways, for generations to come.
C. Operating Principles
To meet the migratory bird conservation challenges
of the twenty-first century, the Migratory Bird
Program will consistently adhere to the principles
of sound science and collaborative partnerships in
its migratory bird conservation and management
activities.
1. Science
The success of the Service and its partners depends
on creating a solid scientific foundation for
conserving and managing migratory bird
populations. The Migratory Bird Program will
strengthen and expand its internal scientific
capabilities in monitoring and assessment, as well
as increase the use of research results generated by
the U.S. Geological Survey (USGS), academic
institutions, and others, in an adaptive resource
management framework. To realize its vision for
migratory bird conservation, the Migratory Bird
Program commits to obtaining a more
comprehensive understanding of how priority bird
populations respond to human caused threats and
environmental stressors, such as habitat loss and
alteration, and to corrective actions such as habitat
restoration and enhancement. Generating and using
scientific information within an adaptive
Great things are done by a series of
small things brought together.
Vincent Van Gogh
The Wood Thrush has declined significantly across its breeding
range since the mid-1960s. Like other deciduous forest habitat
specialists, it faces continuing degradation and destruction of
both its North American breeding grounds and Central American
wintering grounds. /Steve Maslowski
6
Great discoveries and improvements
invariably involve the cooperation of
many minds.
Alexander Graham Bell
From Alaskan and eastern Siberian breeding grounds, the
Western Sandpiper migrates southeast to wintering areas on
both coasts of North and South America. Like many shorebird
species, it remains vulnerable because of declining numbers and
dependence on a relatively few critical stopover sites, such as
the Copper River Delta in Alaska. /Karen Hollingsworth
management context will enable the Service and its
partners to make more cost-effective policy,
management, and regulatory decisions that meet
migratory bird conservation goals and objectives at
continental, national, and landscape scales.
2. Partnerships
To achieve our shared migratory bird conservation
vision and goals, the Migratory Bird Program will
cultivate enduring partnerships. Because migratory
birds inhabit a variety of landscapes as they move
across state lines and international borders, virtually
all nations, organizations, and individuals can
influence migratory birds and their habitats. The
Migratory Bird Program will take a more active
leadership role in coordinating and communicating
among all stakeholders to carry out the most
comprehensive and cost-effective strategies to
protect, restore, and manage migratory birds. A
lasting legacy of migratory birds for future
generations is only possible through the mutual
stewardship that results when partners work
together.
D. Program Priorities
The Service and its partners in migratory bird
conservation face not only environmental, but also
fiscal, technical, and administrative challenges.
Therefore, the Migratory Bird Program must use its
resources strategically and effectively to realize the
far-reaching vision stated in this plan.
With the help of partners and constituents at the
Migratory Bird Conservation Forum in January
2004, and during the strategic plan’s consultation in
the fall of 2003, the Service identified the following
top three priorities for the Migratory Bird Program:
· Address the loss and degradation of
migratory bird habitats.
· Increase and improve scientific
information on migratory bird populations.
· Strengthen and expand regional, national,
and international partnerships to achieve
comprehensive bird conservation.
The Service will focus its limited resources on the
bird species or populations in greatest need of
7
conservation and management. The Migratory Bird
Program has developed a list of Birds of
Management Concern to provide important focus
for the Service’s migratory bird conservation efforts
over the next ten years and will periodically revise
this list to reflect changes in species status (see
Appendix 4).
E. Program Goals
To fulfill its many legal responsibilities for
migratory bird conservation and to address the
mission, vision, and priorities stated above, the
Service will expand both the breadth and depth of
its Migratory Bird Program to address the full range
of species in need of conservation.
The Migratory Bird Program will work to
accomplish the following three overarching goals
which are stepped down into quantifiable long-term
goals and annual performance goals and measures
through the process established by the Government
Performance and Results Act (GPRA). These goals
flow from the Department of the Interior’s Strategic
Plan and the Fish and Wildlife Service’s GPRA
Implementation Plan (see Appendix 5).
Goal 1: Protect, restore, and manage
migratory bird populations to ensure their
ecological sustainability and increase their
socioeconomic benefits.
Goal 2: Protect, restore, and manage
migratory bird habitats to ensure long -term
sustainability of all migratory bird
populations.
Goal 3: Improve hunting, birdwatching, and
other outdoor bird-related experiences and
opportunities, and increase awareness of the
value of migratory birds and their habitats
for their intrinsic, ecological, recreational
and economic significance .
To work on behalf of the wild is to
restore culture.
Gary Snyder
Breeding from Maine north to the arctic, the Common Eider, like
other sea ducks, is one of the least well-studied species of
waterfowl. It is particularly vulnerable to oil spills because it
congregates in large, dense, flocks during winter, molting, and
migration. /Glen Smart
8
III. Implementation Strategies
The Migratory Bird Program will achieve its vision,
priorities, and goals by implementing strategies in
the following five areas of responsibility:
A. Population Monitoring, Assessment, and
Management
B. Habitat Conservation
C. Permits and Regulations
D. Consultation, Cooperation, Communication
E. Recreation
In addition, other programs of the Service,
including the National Wildlife Refuge System,
Endangered Species, International Affairs, and
Fisheries and Habitat Conservation programs are
committed to helping achieve Migratory Bird
Program goals though their own strategic
contributions (see Appendix 6).
A. Population Monitoring, Assessment, and
Management
Information on the population status and trends of
migratory birds is required to comply with
mandates in the various migratory bird treaties and
other legislation (e.g., the Migratory Bird Treaty
Act and the Fish and Wildlife Conservation Act).
Because most migratory birds range widely over
their annual cycles, an accurate assessment of
status, including distribution, population
abundance, and trends, requires long-term
monitoring over broad geographic scales — regional,
national, continental, and range-wide. Monitoring is
also needed to evaluate the effects of management
and conservation activities and human and
environmental factors on bird demographics and
distribution. The Service, other federal and state
agencies, and non-governmental organizations
conduct surveys that greatly contribute to
understanding bird populations. The Service has the
added responsib ility for providing an international
perspective to migratory bird assessment and
management.
The Migratory Bird Program has come close to
fulfilling this responsibility for some species of
waterfowl, a group for which broad-scale
monitoring programs have been in place for many
years. However, information is insufficient for
many other migratory birds, hindering the Service’s
ability to clearly determine population status and
reasonably predict the outcome of management and
conservation activities and environmental changes.
With its partners, the Service will implement,
coordinate, and facilitate robust, sustainable range-wide
surveys, and develop and improve monitoring
objectives and protocols necessary to assess
migratory bird abundances, distributions, trends,
causes of population conditions, and responses to
management and conservation activities.
Strategies for Monitoring:
A-1: Establish clear, quantifiable, and measurable
objectives for all survey and monitoring projects
undertaken or funded by the Migratory Bird
Program.
A-2: Complete a review of all Service supported
migratory bird surveys as a first step toward
identifying gaps, reducing redundancy, and
increasing efficiency.
A-3: Evaluate the design and operation of Service
supported migratory bird surveys relative to
objectives, and institute improvements or
discontinue surveys where appropriate.
A-4: Facilitate periodic, independent evaluations of
survey objectives, designs, operations, data
management, and analyses and reporting of survey
and assessment information, including critiques of
data coverage and quality, for all Service supported
migratory bird surveys.
A-5: Work with partners to develop and implement
statistically rigorous surveys and range-wide
monitoring programs for Birds of Management
Concern.
A-6: Establish formal, periodic consultatio n
processes with the states, flyway councils, and other
partners to determine regional and national priority
survey, monitoring, and management issues for
game and nongame migratory birds.
A-7: Provide private and public land managers
with technical assistance in selecting and
implementing appropriate bird survey and
monitoring techniques.
9
Strategies for Analytical Support and Information
Dissemination:
A-8: Increase capabilities for analytical support,
including survey design, data storage and
management, and analysis.
A-9: Create a dynamic, user-friendly information
and communication system to provide universal
access to survey data and analysis.
A-10: Report regularly on the status and trends of
bird populations based on information derived from
monitoring and research programs.
Strategies for Research:
A-11: Support research aimed at improving the
effectiveness and efficiency of monitoring
protocols, increasing power, precision and accuracy
of analyses, and expanding the availability and
utility of data.
A-12: Support range-wide research on factors that
directly affect migratory bird populations , such as
disease, predation, competition, brood parasitism,
environmental factors, and human-caused mortality.
A-13: Support range-wide research on factors that
affect bird populations through reducing habitat
quality and quantity, such as invasive species,
agricultural and other land use practices, and habitat
fragmentation.
A-14: Evaluate the effectiveness of management
actions and develop or refine best management
practices for migratory birds using an adaptive
management framework.
Strategies for Population Management:
A-15: Work with other nations, flyways, and bird
conservation initiatives to develop explicit,
unambiguous management objectives for Birds of
Management Concern.
A-16: Within an adaptive management framework,
undertake conservation and management actions,
consistent with bird conservation plans, to achieve
desired abundance levels or to reintroduce desired
species.
A- 17: Provide federal land management agencies,
states, and other land and water management
partners with technical support necessary to
undertake conservation and management actions
consistent with bird conservation plans.
A.18: Periodically review and adjust desired
population levels and objectives based on the
results of research, monitoring, and assessment.
A-19: Based on valid scientific data, reduce to
acceptable levels the abundances of migratory bird
species that create economic and ecological damage
and human health and safety concerns.
A-20: Identify and implement actions to respond to
threats to migratory birds from diseases and
invasive species, including alien wildlife.
A-21: Support efforts by the USGS National
Wildlife Health Center and other partners to
identify, study, and address traditional and
emerging bird disease problems such as botulism,
avian cholera, Newcastle disease, and West Nile
virus.
A-22: Implement and improve surveys to measure
subsistence harvest of migratory birds in Alaska,
and conduct appropriate analyses to assess likely
population impacts of that harvest.
The Swainson’s Hawk migrates over 6,000 miles (10,000 km)
every spring and fall between its North American breeding
grounds and South American wintering grounds . It is threatened
by habitat destruction, a reduction in its prey, and pesticide use.
/Karen Hollingsworth
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B. Habitat Conservation
Protection, restoration, and enhancement of
terrestrial, aquatic and marine habitats, landscapes,
and seascapes are crucial to restore and sustain
migratory bird populations. Since its inception, the
Service has placed a premium on providing high
quality habitats for migratory birds, and
traditionally the National Wildlife Refuge System
and the Partners for Fish and Wildlife Programs
have been the cornerstones of this effort. In
addition, the Migratory Bird Program administers
national and international programs that implement
the North American Wetlands Conservation Act,
Neotropical Migratory Bird Conservation Act, and
the Migratory Bird Hunting and Conservation
Stamp Act. The Migratory Bird Program also
supports habitat joint ventures, which are regional,
landscape-oriented public -private partnerships
dedicated to conserving habitat for birds. Together,
these programs serve as catalysts for habitat
conservation and management throughout the
hemisphere. The contribution of private
landowners, state and other federal agencies, tribes,
non-profit organizations, corporations, and
academia to bird habitat conservation is essential to
meet migratory bird goals and objectives and,
through these programs, the Service works closely
with these partners.
Despite the great successes of these and other
Service habitat programs, many migratory bird
habitats remain imperiled. The Migratory Bird
Program will continue to develop national and
international partnerships to improve and expand
efforts to address these threats. Integral to this effort
is the development of scientific tools such as
modeling and geographic information systems that
integrate information on habitat and landscape
conditions with demographic data to produce
biologically-based landscape designs that meet the
needs of multiple species. By developing these tools
and increasing the technical assistance capabilities
of the Migratory Bird Program, the Service and its
partners can more effectively protect, restore, and
manage sustainable habitats for migratory birds.
Strategies for Biological Planning:
B-1: Work with partners range-wide to establish
habitat conservation objectives for Birds of
Management Concern through existing bird
conservation planning efforts.
B-2: Work with partners range-wide to integrate
migratory bird population and habitat data using
biologically-based geospatial planning tools to
create sustainable landscape designs for Birds of
Management Concern.
Strategies for Conservation Delivery:
B-3: Protect, restore and manage priority
terrestrial, aquatic , and marine habitats for birds
through the North American Wetlands
Conservation Act, Neotropical Migratory Bird
Conservation Act, Migratory Bird Hunting and
Conservation Stamp Act, and other appropriate
funding opportunities.
B-4: Give priority in grant and other funding
programs to projects that are designed to achieve
population and habitat objectives stated in bird
conservation plans and sustainable landscape
designs for Birds of Management Concern.
B-5: Participate in promotion, delivery, and
evaluation of non-Service habitat conservation
programs (e.g., U.S. Department of Agriculture’s
Conservation Reserve and Wetland Reserve
Program and the National Oceanic and Atmospheric
Administration’s National Marine Sanctuary
Program) that have the potential to affect the
quantity and quality of migratory bird habitat.
Strategies for Technical Assistance:
B-6: Coordinate with other Service habitat
programs (e.g., Endangered Species, National
Wildlife Refuge System, and Fisheries and Habitat
Conservation Programs) by communicating bird
population and habitat requirements to maximize
the benefits of these programs to migratory birds, as
required by Executive Order 13186 (see Appendix
6).
B-7: Provide technical assistance to Service field
stations and private and public partners on the most
effective protection, restoration and management
practices for migratory bird habitats.
B-8: Coordinate with public and private partners
that manage resources, such as agricultural land,
timber, grasslands, fisheries, and energy, by
communicating migratory bird requirements to
minimize the adverse impacts and maximize the
benefits of these programs to migratory birds.
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Strategies for Habitat Assessment:
B-9: Work with partners to track changes in
migratory bird habitats across the entire ranges of
Birds of Management Concern.
B-10: Work with partners to coordinate population
monitoring with habitat monitoring, where
necessary, to develop sustainable landscape designs
for Birds of Management Concern.
B-11: Promote research to better assess landscape
changes and their impacts on Birds of Management
Concern at local, regional, and continental scales.
C. Permits and Regulations
Under the authorities of the Migratory Bird Treaty
Act and the Bald and Golden Eagle Protection Act,
the Service regulates the take of migratory birds for
hunting, rehabilitation, preventing depredation,
scientific collection, religious use, and other
purposes. Regulating take is a primary and
traditional Service activity that uses monitoring and
assessment information to manage migratory bird
populations. Overall, the Service’s challenge is to
balance the take of migratory birds with
international, national, and regional commitments
to conserve them.
Each year the Service conducts a well-defined cycle
of procedures and events, including public
consultation, which results in rules governing
annual sport and subsistence harvest for migratory
game bird species. For other direct take activities,
the Migratory Bird Program issues thousands of
permits that regulate the number and species of
birds that can be taken. Permits provide a means to
balance use and conservation, and allow the Service
to monitor activities to determine how they affect
migratory birds. The Service will continue to
improve the hunting and permits regulations
processes to better serve migratory birds and the
public. For example, through Adaptive Harvest
Management the Service applies the best available
science to provide hunting opportunities consistent
with established harvest objectives, while
considering the status and long-term conservation
of migratory game birds. The Service’s Law
Enforcement program also plays a critical role in
ensuring that migratory bird hunting and other
forms of take are conducted within the bounds of
the law.
The Migratory Bird Program also works with other
Service programs in the review, consultation, and
permitting process for federal land management
activities and for private activit ies requiring federal
permits and licenses. These programs work together
to conserve wildlife in accordance with laws, while
streamlining the permitting process to help the
public.
Executive Order 13186, Responsibilities of Federal
Agencies to Protect Migratory Birds directs federal
agencies whose actions have a measurable negative
impact on migratory bird populations to develop
Memoranda of Understanding with the Service to
promote the conservation of migratory birds. This
Order will have important implications to migratory
bird conservation in the coming years.
Strategies for Permits:
C-1: Implement actions outlined in the Service’s
document Leaving a Lasting Legacy: Permits as a
Conservation Tool to streamline the migratory bird
permit program, provide better customer service,
and support conservation (see Appendix 7).
C-2: In cooperation with partners, develop and
implement biologically sound permits, regulations,
policies, and procedures to effectively manage and
assess the take of migratory birds, while decreasing
the administrative burden for permit applicants.
C-3: Implement the recommendations in the
Service’s Permits Workload Analysis to provide
resources to meet customer needs.
Strategies for Hunting Regulations:
C-4: Continue to implement and improve an
objective, streamlined process for establishing
annual hunting regulations and strengthen the
working relationships with flyway councils and
individual states.
C-5: Enhance the use of Adaptive Harvest
Management as an effective approach to managing
migratory game bird harvests.
C-6: Continue to provide an effective forum for
public review and comment during the development
of annual hunting regulations.
12
C-7: Work with the Alaska Migratory Bird Co-management
Council to provide for regulated
spring and summer subsistence harvest of migratory
birds consistent with bird conservation goals,
remaining cognizant of the desires of other
stakeholders and user-groups.
C-8: Work with Native American tribes to improve
the process for establishing annual hunting
regulations.
Strategies for Other Legal Compliance:
C-9: Develop and implement Memoranda of
Understanding with other federal agencies to
promote bird conservation under Executive Order
13186 through adoption of processes and measures
that avoid or minimize the negative impacts of
agency actions on migratory birds.
C-10: Work with the Service’s Office of Law
Enforcement and state and tribal law enforcement
offic ials to ensure compliance with the laws and
international conventions applicable to migratory
birds.
D. Consultation, Cooperation, and
Communication
The Migratory Bird Program works with partners
throughout the ranges of migratory birds — at the
local, state, regional, national, and international
levels — to achieve a biologically based, landscape-oriented
approach to migratory bird conservation.
The Migratory Bird Program is committed to
strengthening its tools of consultation, cooperation,
and communication to increase and energize its
partnerships. The Migratory Bird Program supports
habitat joint ventures which are regional, landscape-oriented
partnerships working to conserve habitat
for birds in North America. Through species joint
ventures the Migratory Bird Program cooperates
with international partners to answer biological and
ecological questions regarding individual waterfowl
species or populations. The Service works closely
with the flyway councils which deal with a variety
of migratory bird management issues at the state,
provincial, and flyway scale s, including the
development of hunting regulations.
The Migratory Bird Program serves as a focal point
for developing and implementing regional, national,
and continental bird conservation plans, including
the North American Waterfowl Management Plan,
Partners in Flight Landbird Conservation Plans, the
U.S. Shorebird Conservation Plan, the North
American Waterbird Conservation Plan, and
migratory game bird management plans for
waterfowl, woodcock, and doves developed by the
flyway councils. These plans present population
and habitat goals for priority species and have been
developed by coalitions of federal, state, and
provincial agencies, tribal entities, foreign
governments, non-governmental organizations,
industry, academia, and private individuals.
The Service also supports the North American Bird
Conservation Initiative (NABCI) which provides a
forum for state, regional, national, and international
organizations and bird initiatives to coordinate their
efforts to increase resources and expand
partnerships to deliver integrated bird conservation.
NABCI is facilitating partners’ efforts to integrate
bird conservation plans , develop comprehensive,
sustainable landscape designs for birds, and carry
out all-bird conservation through regional
partnerships, such as joint ventures. For example,
NABCI developed and approved Bird Conservation
Regions (BCRs) as ecological units within which
planning and implementation can occur. The
Service will continue to support partnerships at
every scale that advance an integrated and
comprehensive approach to bird conservation.
Strategies for Coordination:
D-1: Actively support and participate with partners
in developing, implementing, and evaluating bird
conservation plans at appropriate geographic scales.
D-2: Coordinate bird conservation planning efforts
with other ongoing planning efforts, including State
Comprehensive Wildlife Conservation Plans.
D-3: Work with partner agencies and organizations
to obtain additional funding for all-bird
conservation and to leverage resources towards
agreed upon goals identified in bird conservation
plans and sustainable landscape designs.
D-4: Coordinate bird planning and implementation
efforts with Canada, Mexico, Central and South
America, the Caribbean, and other nations that
share migratory birds.
13
D-5: Support NABCI efforts to facilitate and
coordinate integrated bird conservation planning
and implementation at the international, national,
regional, and state levels.
D-6: Expand existing or create new habitat joint
ventures to encompass all bird habitats (terrestrial,
aquatic , and marine) in North America, and initiate
and strengthen similar partnerships beyond North
America.
D-7: Provide technical assistance to partner
agencies and organizations through federal project
reviews and other means to integrate migratory bird
conservation objectives into their project planning
and implementation.
D-8: Coordinate and communicate with the USGS
Biological Resources Discipline to obtain directed
research and development information and
technical assistance on migratory birds and their
habitats and factors affecting them.
D-9: Strengthen range-wide migratory bird
management by improving international
partnerships among Migratory Bird Treaty Act
nations and other nations within flyways used by
migratory birds.
Strategies for Consultation and Technical
Assistance:
D-10: Assist other nations and U.S. partners in
assessing the status of migratory birds, identifying
important habitats, and developing strategies to
conserve shared resources through national and
international grant programs and direct technical
assistance.
D-11: Provide technical assistance to other Service
programs (e.g., National Wildlife Refuges,
International Conservation, Endangered Species
and Fisheries and Habitat Conservation) to increase
their ability to meet trust responsibilities for
migratory bird conservation.
D-12: Provide information to private landowners to
assist them in protecting and restoring bird
populations and habitats on a voluntary basis.
D-13: Provide technical assistance to industry on
ways to avoid or minimize impacts of
communications towers, wind turbines, fishing
bycatch, and other hazards to migratory birds and
recognize positive industry efforts that result in
increased conservation (e.g., communications
industry).
Strategies for Communications and Outreach:
D-14: Review and expand existing and develop
new products, programs, and venues that increase
awareness of the value of conserving migratory
birds and their habitats (e.g., International
Migratory Bird Day and Urban Conservation
Treaties for Migratory Birds).
D-15: Promote and expand existing programs that
increase awareness of the value of comprehensive,
integrated approaches to bird conservation that
conserve all priority bird species across geopolitical
boundaries, taxonomic groups, and sociocultural
divides.
D-16: Increase sales of the Migratory Bird Hunting
and Conservation Stamp (i.e., Federal Duck Stamp)
by expanding public awareness of this program,
beyond its traditional hunting constituency, as the
most direct way for citizens to protect migratory
bird habitat.
D-17: Increase student and school participation in
the Junior Duck Stamp Program and strengthen its
educational content by incorporating its curriculum
into national and state science and art education
standards.
D-18: Increase involvement of organizations and
individuals representing ethnic and culturally
diverse communities in bird conservation efforts.
D-19: Take actions to ensure the nation’s students
are knowledgeable about the conservation needs of
migratory birds and to instill stewardship of natural
resources by promoting awareness, appreciation,
and knowledge of birds through such programs as
Shorebird Sister Schools and Flying WILD, which
is sponsored by the President’s Council for
Environmental Education.
14
E. Recreation
Millions of Americans enjoy observing,
photographing, and hunting migratory birds in their
natural habitats. The Service is committed to
providing U.S. citizens with quality outdoor
recreational opportunities involving migratory birds
by conserving these species and their habitats. By
working with the National Wildlife Refuge System,
the Migratory Bird Program is helping to improve
migratory bird recreation on national wildlife refuge
and other Service lands. Through other
partnerships, the Migratory Bird Program will
promote and improve bird-related recreational
opportunities for people on other public and private
lands.
Providing the public with opportunities for quality
recreation promotes a strong conservation ethic. By
participating in quality recreation involving
experiential education (e.g., nature studies and work
on conservation projects) and individual reflection
(e.g., birdwatching and hunting) citizens develop a
deep sense of wonder and appreciation for the
natural world as well as a sense of responsibility for
protecting and restoring the earth’s community of
life for future generations.
Strategies for Improving Recreational
Opportunities:
E-1: Work with the National Wildlife Refuge
System to actively implement the provisions of the
Refuge Improvement Act to improve the quantity
and quality of migratory bird-related recreation on
National Wildlife Refuge System lands, as
compatible with refuge goals and authorizing
legislation.
E-2: Actively support state efforts to provide bird-related
recreation through the Service’s Federal
Assistance programs, including the State Wildlife
Grants program.
E-3: With partners, identify and implement projects
and programs to improve the quality of hunting,
birdwatching, and other recreational opportunities
related to migratory birds.
Strategies for Increasing Public Awareness:
E-4: With partners, identify and promote
recreational opportunities associated with migratory
birds, such as hunting and birdwatching.
E-5: Open dialogs with federal, regional, state and
local managers of land and water resources to
encourage recreational opportunities related to
birds.
E-6: Work with birding industries (e.g., optics
manufacturers and birdseed companies),
rehabilitators, and other stakeholders to create new
partnerships and venues that increase public
awareness of non-consumptive bird recreation and
bird conservation (e.g., birding festivals, trails, and
conferences).
E-7: Maintain and expand existing conservation
partnerships with hunters and the hunting industry
to increase awareness of hunting opportunities and
the importance of bird conservation.
U.S. Fish and Wildlife Service
When we see land as a community to
which we belong, we may begin to use it
with love and respect.
Aldo Leopold
Megan Durham/U.S. Fish and Wildlife Service
15
Acknowledgments
Gratitude goes to the many people who contributed to the development of this strategic plan including more
than 200 commenters and the 65 Service employees and partners who participated in the Migratory Bird
Conservation Forum at the National Conservation Training Center (NCTC) in Shepherdstown, West
Virginia on January 20-22, 2004. The writing team for this strategic plan included Roxanne Bogart, John
Christian, Bob Blohm, Cyndi Perry, Seth Mott, Bob Ford, and Brad Andres, with editorial assistance from Steve
Lewis and Scott Schwenk. Thanks to members of the Migratory Bird Strategic Plan Steering Committee for
leading the way for migratory bird conservation in the twenty-first century: Paul Schmidt, Brian Millsap,
David Smith, Doug Alcorn, John Christian, Paul Gertler, Roxanne Bogart, Phil Million, Greg Knadle, Anne
Hoover, and Chris McKay. Special thanks to Genevieve Pullis for helping to organize and coordinate the
Conservation Forum. Thanks to Janet Ady and her staff at NCTC and David J. Case for their help in
making the Conservation Forum possible. Gratitude goes to members of Comment Review Team,
especially Genevieve Pullis and Shauna Hanisch. Special thanks to Beth Andujar and Harish Bellary for
helping to create the migratory bird strategic plan web pages, e-mail user groups, and comments database.
Thanks to the many staff of the Migratory Bird Program throughout the country who provided valuable
comments and helped pull together information for this document. Special thanks to Scott Weidensaul for
lifting our spirits at the Conservation Forum and for crafting an inspirational vision worthy of the
remarkable species we all seek to conserve.
Though absent from much of its historic range, the Whooping Crane has been brought back from
the brink of extinction through decades of research and management. /John Christian
16
Introduction to Appendices
The following appendices provide additional information on the Service’s Migratory Bird Program and links
to important resources that explain and guide the Program’s conservation efforts. Readers are encouraged to
visit the following site for more information: http://migratorybirds.fws.gov/mbstratplan/mbstratplan.htm
Appendix 1: Organization and Budget Structure of the Migratory Bird Program
The Service’s Migratory Bird Program has primary responsibility for the conservation and management of
migratory birds and their habitats. Essential staff and funding support come from other parts of the Service
that deal routinely with this trust resource, including the National Wildlife Refuge System, Law Enforcement,
International Affairs, Fisheries and Habitat Conservation, and Endangered Species.
The leader of the Migratory Bird Program is the Assistant Director for Migratory Birds and State Programs
located in Washington, D.C. There are four program components under the Assistant Director: the Division of
Migratory Bird Management (DMBM), the Division of Bird Habitat Conservation (DBHC), the Division of
Federal Aid, and the Office of Aviation Management. The Migratory Bird Permit Program is managed by
DMBM. The Federal Duck Stamp Office is managed by DBHC. The primary functions of the Washington
Office staff include legislative, regulatory, budget and policy development, and program guidance.
The Migratory Bird Program is implemented on the ground by the Assistant Regional Directors for Migratory
Birds and State Programs through seven Regional Offices and associated field stations with programs for
Migratory Bird Management and Joint Ventures. Research support to the Migratory Bird Program within the
Department of Interior is provided by the Biological Resources Discipline of the U.S. Geological Survey
located in Reston, Virginia and associated regional offices, science centers, and cooperative research units.
The Migratory Bird Program budget structure contains five components for appropriations and execution
processes referred to as subactivities: (1) Conservation and Monitoring, (2) Permits, (3) North American
Waterfowl Management Plan (Joint Ventures), (4) North American Wetlands Conservation Act and (5)
Neotropical Migratory Bird Conservation Act. Annual budgets are structured along subactivity lines. Each
component of the budget is justified and allocated independently of the other.
Regional allocation estimates for each subactivity are determined following decisions by the Office of
Management and Budget on the President’s Budget request level. Budget allocation estimates are displayed in
the Congressional District Report by state and congressional district and published as part of the annual
President’s Budget Justification (Green Book).
Visit the following link to see the Fiscal Year 2005 Migratory Bird Budget Justification:
http://budget.fws.gov/fy%202005%20GB/0602%20mb.pdf
17
Appendix 2: Public Comment Process and Evolution of the Migratory Bird Strategic Plan
· The draft “Blueprint” document underwent a two-month public review from August to October 2003.
· Comments were solicited during Director William’s speech at the annual meetings of the International
Association of Fish and Wildlife Agencies in September 2003, in letters to state directors, through e-mails
to the bird conservation community, and on the strategic plan webpage on the Service’s web site.
· A nine-person Comment Review Team comprised of Service employees from various Regions and
programs was established to review and summarize comments received during the partner consultation.
· The consultation resulted in 217 comments received from Service employees and partners.
· Breakdown of affiliations of commenters:
o 29% non-governmental organizations
o 25% private citizens
o 15% state agencies
o 12% other Federal agencies
o 11% Service employees
o 5% for-profit organizations
o 3% academia
· A majority of the commenters expressed appreciation for the development of a strategic plan, thought the
plan was well-written and comprehensive, and showed support for the plan’s vision and strategies.
· Of the 25 states that commented, 23 explicitly stated support, agreement, or appreciation for the plan and
none expressed lack of support.
· Many states wished for more detailed objectives, continued emphasis on partnerships, and expanded
Service leadership in migratory bird conservation.
· Many commenters felt that specific direction in the form of objectives and priorities was missing from the
plan.
· Commenters expressed differences of opinion about what should be the Service’s focus in migratory bird
conservation (e.g., ecological vs. utilitarian values and game vs. nongame).
· Many commenters were concerned that adequate funding is not available to implement the plan and many
stated a need to develop ways for non-hunters to provide financial support to migratory bird programs.
· Five high priority areas emerged from the comments:
o Protect and restore bird habitats (#1)
o Maintain viable bird populations
o Conduct science and research
o Provide leadership for all-bird conservation
o Stimulate and facilitate partnerships
· In January 2004 at the National Conservation Training Center, the Migratory Bird Program sponsored a
Conservation Forum attended by 65 Service employees and partners to discuss the draft “Blueprint.”
To see a summary of partner responses, visit http://migratorybirds.fws.gov/mbstratplan/responses.htm
18
Appendix 3: Primary International Conventions and Major Domestic Legislation for the
Conservation of Migratory Birds and their Habitats in the United States
_______________________________________________________________________
YEAR AUTHORITY
_______________________________________________________________________
1900 Lacey Act (Amended 1981)
1913 Weeks-McLean Law (Migratory Bird Conservation Act 1913)
1916 Convention for the Protection of Migratory Birds (Canada)
1918 Migratory Bird Treaty Act
1929 Migratory Bird Conservation Act
1934 Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp Act)
1936 Migratory Bird Convention with Mexico (amended 1972)
1940 Pan American (or Western Hemisphere) Convention
1940 Bald Eagle Protection Act
1956 Waterfowl Depredations Prevention Act
1961 Wetlands Loan Act of 1961 (Amended 1969, 1976)
1972 Migratory Bird Convention with Japan
1972 Convention on Wetlands of International Importance Especially as Waterfowl Habitats
(RAMSAR)
1973 Endangered Species Act (ESA)
1973 Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES)
1976 Migratory Bird Convention with the Union of Soviet Socialist Republics
1978 Antarctic Conservation Act
1980 Fish and Wildlife Conservation Act (Amended 1988, 1989)
1982 Convention on Conservation of Antarctic Living Marine Resources
1986 Emergency Wetlands Resources Act
1987 Driftnet Impact Monitoring, Assessment, and Control Act of 1987
1989 North American Wetlands Conservation Act (NAWCA)
1990 Coastal Wetlands Planning, Protection and Restoration Act
1992 Wild Bird Conservation Act
2000 Neotropical Migratory Bird Conservation Act
2001 Responsibilities of Federal Agencies to Protect Migratory Birds (Executive Order 13186)
________________________________________________________________________
To see an overview of primary authorities, visit
http://migratorybirds.fws.gov/mbstratplan/Legalauthamend.pdf
To see a list of secondary authorities, visit
http://migratorybirds.fws.gov/mbstratplan/LegalAuthorities.pdf
19
Appendix 4: Birds of Management Concern
Birds of Management Concern (BMC) are a subset of the species protected by the Migratory Bird Treaty Act
(see 50 CFR 10.13) which pose special management challenges because of a variety of factors (e.g., too few,
too many, conflicts with human interests, societal demands). The Migratory Bird Program will place priority
emphasis on these birds during the next ten years. The BMC list of 412 species, subspecies, or populations
comprises five categories of migratory birds:
(1) birds listed as endangered or threatened under the Endangered Species Act (62),
(2) nongame birds that have been determined to be of conservation concern due to declining populations and
other factors (as published in Birds of Conservation Concern 2002; 247 including all National, Regional, and
Bird Conservation Region species),
(3) game birds that are below desired condition* (35),
(4) game birds that are at or above desired condition** (60), and
(5) birds that are considered overabundant in part or all of their range and thus potentially damaging to natural
ecosystems or human interests (8).
The BMC list will be updated periodically to reflect changes in the status of these species or populations.
Performance goals and measures have been developed that address the status of these species, subspecies, or
populations.
To see the list of Birds of Management Concern, visit
http://migratorybirds.fws.gov/mbstratplan/GPRAMBSpecies.pdf
*Game Birds Below Desired Conditions (GBBDC) are species whose populations are below long-term
averages or management goals, or for which there is evidence of declining population trends.
**Game Birds Above Desired Conditions (GBADC) are species whose populations are at or above long-term
averages or management goals, or for which there is evidence of increasing population trends.
20
Appendix 5: Department of the Interior Strategic Plan and GPRA goals
The Government Performance and Results Act (GPRA) mandates that all federal agencies set long-term and
annual goals, measure performance, and report on the degree to which goals are met. The three overarching
goals of the Migratory Bird Program’s strategic plan flow from the Department of the Interior (DOI) Draft
Strategic Plan for 2004-2008 and the Draft Fish and Wildlife Service Operational Performance Plan.
The Migratory Bird Program supports the following goals in the DOI strategic plan:
(1) Resource Protection – Biological Communities, Strategy 2, targeted at sustaining biological communities
on DOI managed and influenced lands and waters;
(2) Resource Protection – Biological Communities, Strategy 3, targeted at increasing information and
knowledge necessary for decision making;
(3) Resource Protection – Cultural and Heritage Resources, Strategy 1, targeted at increasing the knowledge
base of cultural and heritage resources managed by DOI; and
(4) Recreation Strategy 1 targeted at increasing the quality of recreational activities involving DOI managed
resources, and Strategy 2 targeted at providing effective interpretation and education programs.
The three overarching goals of A Blueprint for the Future of Migratory Birds are further stepped down into
quantifiable long-term goals and annual performance goals and measures. The Service will report on progress
made in achieving these goal and performance measure targets which are available at the following website
links:
To see the Migratory Bird Management Division’s GPRA goals, visit
http://migratorybirds.fws.gov/mbstratplan/MBFY2004GPRA.pdf
To see the Division of Bird Habitat Conservation’s GPRA goals, visit,
http://migratorybirds.fws.gov/mbstratplan/DBHCFY2004GPRA.pdf
21
Appendix 6: Summary of the Director’s Order for Migratory Bird Conservation
In March 2004, a Director’s Order (DO) was issued to provide guidance for Service programs on the
management and conservation of migratory birds. This DO was developed in accordance with Executive
Order (EO) 13186, Responsibilities of Federal Agencies to Protect Migratory Birds. The purpose of the DO is
to minimize the potential adverse effects of migratory bird take, with the goal of striving to eliminate take,
while implementing our mission.
Executive Order 13186, signed on January 10, 2001, directs federal agencies whose actions could have a
measurable negative impact on migratory bird populations to develop Memoranda of Understanding (MOUs)
with the Service to promote conservation of migratory birds. In addition, the EO calls on federal agencies to
take reasonable steps that include restoring and enhancing habitat, incorporating migratory bird conservation
into planning processes, promoting research and information exchange, providing training and visitor
education, and developing partnerships beyond agency boundaries.
The DO describes how the Service will implement the EO 13186 with respect to its own programs and lists
specific strategies for individual programs. Continued intra-Service coordination is essential to maximize the
benefits of these programs to migratory bird conservation. The Service is developing a web page that will
provide an overview of related activities and individual program strategies that the Service will undertake to
fulfill its responsibilities under the DO.
The Migratory Bird Program strategies laid out in this plan, coupled with the DO strategies from other Service
programs, constitute the Service’s overall commitment to migratory bird conservation.
To see Executive Order 13186 and the Director’s Order, visit
http://migratorybirds.fws.gov/mbstratplan/EO.pdf
Appendix 7: Leaving a Lasting Legacy: Permits as a Conservation Tool
As authorized by the Migratory Bird Treaty Act, the Service issues permits to qualified applicants for the
following types of activities: falconry, raptor propagation, scientific collecting, special purposes (e.g.,
rehabilitation, education, migratory game bird propagation, and salvage), take of depredating birds, taxidermy,
and waterfowl sale and disposal. Migratory bird permit policy is developed by the Division of Migratory Bird
Management and the permits themselves are issued by the Regional Bird Permit Offices. The regulations
governing migratory bird permits can be found in 50 CFR part 13 (General Permit Procedures) and 50 CFR
part 21 (Migratory Bird Permits).
In addition to permits issued by the Migratory Bird Program, the Service also issues permits through its
Endangered Species, International Affairs, and Law Enforcement programs. In 2002, the Service developed a
vision and action plan, Leaving a Lasting Legacy: Permits as a Conservation Tool, for its various permit
programs to promote long-term conservation of animals, plants, and their habitats, and encourage joint
stewardship with others. This document can be viewed at:
http://library.fws.gov/IA_Pubs/permits_legacy02.pdf, or go to http://permits.fws.gov, for more information on
the Service’s permit program.
U.S Fish and Wildlife Service
Migratory Birds and State Programs
4401 North Fairfax Drive, MBSP-4000
Arlington, Virginia 22203
http://birds.fws.gov/

Click tabs to swap between content that is broken into logical sections.

A Blueprint for the Future of
Migratory Birds
Migratory Bird Program
Strategic Plan 2004-2014
U.S. Fish and Wildlife Service
Message from the Assistant Director
for Migratory Birds and State Programs
The Migratory Bird Program of the U.S. Fish and Wildlife Service enjoys a rich and successful tradition.
It has been instrumental, on its own and with partners, in delivering bird conservation throughout the
hemisphere for several decades. It is a critical hub through which much is accomplished.
This strategic plan outlines the future direction of the Migratory Bird Program and how it will continue to
contribute to bird conservation in North America and around the world. Like a “blueprint” it lays out the
goals and design for a promising future for migratory birds.
This “blueprint” reflects the collective wisdom of many people and groups that care deeply about birds
and their habitats. Birds are indicators of the health and quality of our environment and are enjoyed by a
large proportion of our citizens. It is critically important for us to better understand the dynamics of those
bird populations and habitats that are in trouble and then take actions to intervene strategically and
effectively whenever we can. And it is also important to support actions to keep “common birds
common.”
Clearly, the U.S. Fish and Wildlife Service alone cannot achieve the conservation of migratory birds — it
will take the collective and coordinated efforts of thousands of partner organizations and citizens to do
this. Birds are everywhere and we all have a responsibility to act on their behalf. As directed by
international treaties and domestic legislation, the United States government and its people have called
upon the Service to serve as a leader, a catalyst, and a facilitator of local, regional, national, and international
partnerships to protect, restore, and manage all native migratory birds for future generations. This plan
provides the structure and framework to guide the Service in this all- important effort.
We will use this strategic plan as a guidepost for future funding and policy decisions; however, this plan
is both dynamic and evolutionary. We will revise it periodically, with input from our partners, to reflect
lessons learned from both our successes and our failures. And we will hold ourselves accountable for
results which will add up to a better future for migratory birds and their habitats throughout the
hemisphere and beyond.
As you read this plan, please consider how you can contribute to the Vision, Priorities, Goals, and
Strategies of the “blueprint.” It will take all of us to make it happen. And the beneficiarie s will be
future generations of citizens who will continue to hear birds singing in the morning; who will delight in
seeing a bird in their backyard or along a nature trail; or who will enjoy connecting with nature through a
hunting experience.
Let’s work together to give birds, and people, a promising future.
Paul Schmidt
Assistant Director for Migratory Birds and State Programs
U.S. Fish and Wildlife Service
Table of Contents
I. Introduction………………………………………………………………………1
II. Migratory Bird Program Direction...………………………………………........4
A. Mission of the Service for Migratory Birds……………………………. 4
B. Vision of the Migratory Bird Program ………………………………5
C. Operating Principles……………………………………………………. 5
D. Program Priorities……………………………………………………....6
E. Program Goals…………………………………………………………...7
III. Implementation Strategies……………………………………………………...8
A. Population Monitoring, Assessment, and Management………………...8
B. Habitat Conservation…………………………………………………… 10
C. Permits and Regulations ……………………………………………....11
D. Consultation, Cooperation, and Communication………………………. 12
E. Recreation……………………………………………………………….14
IV. Acknowledgements………………………………………………………….....15
V. Appendices……………………………………………………………………...16
Appendix 1: Organization and Budget Structure of the Migratory Bird Program
Appendix 2: Public Comment Process and Evolution of the Strategic Plan
Appendix 3: Primary International Conventions and Major Domestic Legislation
Appendix 4: Birds of Management Concern
Appendix 5: Department of the Interior Strategic Plan and GPRA goals
Appendix 6: Summary of the Director’s Order for Migratory Bird Conservation
Appendix 7: Leaving a Lasting Legacy: Permits as a Conservation Tool
Bob Ballou
Propelled by an ancient faith deep within their genes, billions of birds
hurdle the globe each season...They are not residents of any single place
but of the whole, and their continued survival rests almost entirely
within our hands.
Scott Weidensaul
Photos on front cover: Top row: Lesser Scaup, Dave Menke; Prairie Warbler, Steve Maslowski;
Middle row: Hunters, Megan Durham U.S. Fish and Wildlife Service; Earth, NASA/U.S.
Fish and Wildlife Service; Birdwatcher, Steve Lewis
Bottom row: Red-footed Booby, Karen Hollingsworth; Bar-tailed Godwit, Tim Bowman
Photo on back cover: Great Egret in tree, Rob Miller
Illustrations by Bob Hines
1
I. Introduction
Migratory Birds: A Federal Trust Resource
The seasonal ebb and flow of migratory birds is one
of the most complex and compelling dramas in the
natural world. Driven by a genetic memory millions
of years in the making, these animals embark twice
each year on long-distance journeys between their
breeding areas and wintering grounds. Their travels
traverse states, landscapes, and oceans throughout
the hemispheres linking the countries, peoples, and
ecosystems they visit. The conservation and
management of animals capable of such impressive
mobility requires strong federal leadership to foster
effective partnerships among the many nations,
states, provinces, tribes and organizations that are
woven together by the flight paths of these
remarkable species.
The U.S. Fish and Wildlife Service (Service) is the
principal federal agency charged with protecting
and enhancing the populations and habitats of more
than 800 species of migratory birds that spend all or
part of their lives in the United States. The Service
is committed to undertaking an unprecedented level
of cooperation and coordination to protect and
conserve these international treasures.
Birds and People
Because of their ubiquitous and conspicuous
presence, migratory birds symbolize America’s
wildlife experience. Birds enrich human lives in
innumerable ways and the loss of bird populations
would immeasurably diminish the quality of life for
a large segment of the American public. Birds have
intrinsic value to people as threads in the earth’s
ecological tapestry, as pollinators, predators, and
prey. Birds are also actively appreciated and
enjoyed by millions of people throughout the
country.
Nearly 82 million residents of the United States -
39 percent of the adult population - participate in
wildlife-related activities, and 64 million of them
pursue bird-related recreation, such as
birdwatching, backyard bird feeding, hunting, and
photography. These citizens substantially contribute
to local economies throughout the country by
spending nearly $40 billion annually on these
pursuits. Experiences range from an annual
Migratory birds are indeed a source of
wonder and inspiration. They weave the
nations of the globe together as
neighbors.
John Turner
The Arctic tern flies over 20,000 miles (35,000 km) every year –
roughly the circumference of the Earth – from its arctic tundra
breeding grounds via the coast of Africa to Antarctica and back
again. It is declining at the southern edge of its breeding range
on the Atlantic Coast. /Dave Menke
2
The human race is challenged more than
ever before to demonstrate our mastery,
not over nature but of ourselves.
Rachel Carson
The Golden-winged Warbler breeds in Ontario and the northern
United States and overwinters in Central America and northern
South America. It is among a suite of early successional forest
species that have shown some of the greatest declines of any
landbird habitat group. /Steve Maslowski
duck-hunting trip to enjoying a chickadee at a
backyard feeder to watching a pair of red-tailed
hawks from a tractor seat. In addition, more than
13,000 subsistence hunters have a long and rich
cultural tradition of harvesting birds in rural Alaska.
These citizens have every expectation that their
children, grandchildren, and great-grandchildren
will be able to experience the same wonder and
enjoyment of birds in their natural habitats. The
Service recognizes that migratory bird conservation
and management is ultimately for the benefit of
future generations of birds and people, too.
The Challenges of Today
Compared to a century ago, society today faces a
more complex set of environmental problems that
occur over the entire ranges of migratory birds.
Habitat loss and degradation from a burgeoning
human population and direct bird mortality
attributable to a host of human-caused factors are
redefining the challenges of migratory bird
conservation in the twenty-first century. Declines in
abundance of many landbird, shorebird, and
waterbird populations, coupled with exponential
growth of some goose populations , are indicative of
ecosystems that have been highly altered.
Reductions in habitat quantity and quality, the
primary causes of negative population trends in
many species, are exacerbated by the direct loss of
bird life from an array of external environmental
hazards. Despite the banning of DDT, which
resulted from Rachel Carson’s far-sighted warning
of a “silent spring,” pesticides and other
contaminants continue to poison birds. Numerous
other factors such as high predator populations in
human-altered ecosystems, invasive species,
collisions with human-made structures, and disease
outbreaks collectively cause significant migratory
bird mortality. Global warming and the demand for
water, particularly in the West, are of considerable
concern; however their specific effects on bird
populations and habitats are as yet unknown.
Birds are the ultimate indicator of environmental
quality. Clean air, clean water, and abundant,
diverse habitats are essential for birds to continue to
survive and flourish. Without a healthy
environment, bird populations will diminish and
species will disappear, along with the quality of life
for people on this planet.
3
Meeting the Challenges
For more than a century, the Service and its
predecessors ha ve endeavored to achieve lasting
conservation of migratory birds. The Service’s
efforts have resulted, for example, in the creation of
more than 540 national wildlife refuges and wetland
management districts as havens for waterfowl,
colonial waterbirds , seabirds, shorebirds and
landbirds. The Service developed and continues to
carry out the longest operating and most
comprehensive survey of animal abundance, the
Aerial Waterfowl Breeding Ground Population and
Habitat Survey. The Service also guided the
recovery of endangered species such as the
peregrine falcon and brown pelican. In addition, the
Service administers two premier continental
partnership-based conservation efforts, the North
American Waterfowl Management Plan and the
North American Wetlands Conservation Act.
Through these accomplishments the Service has left
a legacy of leadership in twentieth century
migratory bird conservation. However, despite
these and other successes, the Service now faces a
host of challenges to meet the expectations of
growing constituencies that often have conflicting
priorities for the conservation and management of
migratory birds and their habitats.
To surmount the escalating challenges of this
century and meet public expectations for migratory
bird conservation and management, the Service
needs a clear, well-defined blueprint to guide its
actions over the next decade. This strategic plan is
designed to meet that need over the ten-year period
from 2004-2014. Its purpose is to direct the efforts
of those Service offices that administer the
Migratory Bird Program, including the Office of
Migratory Birds and State Programs through the
Washington Office Divisions of Migratory Bird
Management and Bird Habitat Conservation, seven
Regional Migratory Bird and Joint Venture
Program Offices, and associated field stations (see
Appendix 1).
To develop this strategic plan, the Migratory Bird
Program sought the counsel and wisdom of its
partners during a two-month consultation in the fall
of 2003 and a Migratory Bird Conservation Forum
in January 2004 (see Appendix 2). This plan sets a
course for the Service to engage existing and new
partners in a comprehensive approach that
coordinates and integrates partners’ efforts across
The future belongs to those who believe
in the beauty of their dreams.
Eleanor Roosevelt
Experiencing long-term population declines, the Northern Pintail
breeds throughout most of Alaska and Canada southward into
the mid-western United States. It over-winters throughout most
of the United States south through Mexico to northern South
America. /Dave Menke
4
The U.S. Fish and Wildlife Service's
mission is, working with others, to
conserve, protect and enhance fish,
wildlife, and plants and their habitats
for the continuing benefit of the
American people.
The Marbled Godwit breeds primarily in the grasslands of the
northern Great Plains and winters in large numbers along the
coast of southern California and western Mexico. It is one of
many grassland breeders threatened by habitat degradation.
/Karen Hollingsworth
geographic scales, taxonomic groups, shared
habitats and landscapes, and human cultural
experiences. The Migratory Bird Program will
update this plan in 2008 based on scientific and
technical advances, environmental changes, and
results achieved.
Every three years, beginning in Fiscal Year 2005,
the Migratory Bird Program will develop action
plans that describe those specific priority tasks that
it will undertake in the short-term to accomplish the
long-term goals of this plan. The Service’s seven
Regional Offices and Washington Office will play
important role s in carrying out these actions as well
as coordinating and collaborating with partners
within and outside the Service. Working with other
Service programs, public and private organizations,
and individuals is essential to secure a future for
migratory birds. State wildlife agencies play special
roles by working with the Service to assume co-management
responsibilities for migratory birds, in
addition to managing the resident game bird species
which have been entrusted to their care.
II. Migratory Bird Program
Direction
This section presents the overall vision for the
Migratory Bird Program which is firmly grounded
in the mission of the Service. The vision is followed
by a pair of operating principles which underpin the
administration of Migratory Bird Program.
Following the operating principles are sets of
priorities and goals that break down the vision into
specific components. The Migratory Bird Program
will work to achieve these priorities and goals using
implementation strategies in five areas of
responsibility, presented in the third section of this
plan.
A. Mission of the Service for Migratory
Birds
The U.S. Fish and Wildlife Service has the legal
mandate and the trust responsibility to maintain
healthy migratory bird populations for the benefit of
the American public. The Service is authorized by
more than 25 primary conventions, treaties, and
laws to ensure the conservation of more than 800
species of migratory birds and their habitats (see
Appendix 3). Many of the treaties extend beyond
5
the borders of the United States. The Service works
with many foreign governments, state and other
federal agencies, tribes, non-profit organizations,
academic institutions, industry, and private
individuals, both within the United States and
abroad, to meet these mandates.
B. Vision of the Migratory Bird Program
Through careful management built on
solid science and diverse partnerships,
the Service and its partners restore and
sustain the epic sweep of bird migration
and the natural systems on which it
depends — fostering a world in which
bird populations continue to fulfill their
ecological roles while lifting the human
spirit and enriching human lives in
infinite ways, for generations to come.
C. Operating Principles
To meet the migratory bird conservation challenges
of the twenty-first century, the Migratory Bird
Program will consistently adhere to the principles
of sound science and collaborative partnerships in
its migratory bird conservation and management
activities.
1. Science
The success of the Service and its partners depends
on creating a solid scientific foundation for
conserving and managing migratory bird
populations. The Migratory Bird Program will
strengthen and expand its internal scientific
capabilities in monitoring and assessment, as well
as increase the use of research results generated by
the U.S. Geological Survey (USGS), academic
institutions, and others, in an adaptive resource
management framework. To realize its vision for
migratory bird conservation, the Migratory Bird
Program commits to obtaining a more
comprehensive understanding of how priority bird
populations respond to human caused threats and
environmental stressors, such as habitat loss and
alteration, and to corrective actions such as habitat
restoration and enhancement. Generating and using
scientific information within an adaptive
Great things are done by a series of
small things brought together.
Vincent Van Gogh
The Wood Thrush has declined significantly across its breeding
range since the mid-1960s. Like other deciduous forest habitat
specialists, it faces continuing degradation and destruction of
both its North American breeding grounds and Central American
wintering grounds. /Steve Maslowski
6
Great discoveries and improvements
invariably involve the cooperation of
many minds.
Alexander Graham Bell
From Alaskan and eastern Siberian breeding grounds, the
Western Sandpiper migrates southeast to wintering areas on
both coasts of North and South America. Like many shorebird
species, it remains vulnerable because of declining numbers and
dependence on a relatively few critical stopover sites, such as
the Copper River Delta in Alaska. /Karen Hollingsworth
management context will enable the Service and its
partners to make more cost-effective policy,
management, and regulatory decisions that meet
migratory bird conservation goals and objectives at
continental, national, and landscape scales.
2. Partnerships
To achieve our shared migratory bird conservation
vision and goals, the Migratory Bird Program will
cultivate enduring partnerships. Because migratory
birds inhabit a variety of landscapes as they move
across state lines and international borders, virtually
all nations, organizations, and individuals can
influence migratory birds and their habitats. The
Migratory Bird Program will take a more active
leadership role in coordinating and communicating
among all stakeholders to carry out the most
comprehensive and cost-effective strategies to
protect, restore, and manage migratory birds. A
lasting legacy of migratory birds for future
generations is only possible through the mutual
stewardship that results when partners work
together.
D. Program Priorities
The Service and its partners in migratory bird
conservation face not only environmental, but also
fiscal, technical, and administrative challenges.
Therefore, the Migratory Bird Program must use its
resources strategically and effectively to realize the
far-reaching vision stated in this plan.
With the help of partners and constituents at the
Migratory Bird Conservation Forum in January
2004, and during the strategic plan’s consultation in
the fall of 2003, the Service identified the following
top three priorities for the Migratory Bird Program:
· Address the loss and degradation of
migratory bird habitats.
· Increase and improve scientific
information on migratory bird populations.
· Strengthen and expand regional, national,
and international partnerships to achieve
comprehensive bird conservation.
The Service will focus its limited resources on the
bird species or populations in greatest need of
7
conservation and management. The Migratory Bird
Program has developed a list of Birds of
Management Concern to provide important focus
for the Service’s migratory bird conservation efforts
over the next ten years and will periodically revise
this list to reflect changes in species status (see
Appendix 4).
E. Program Goals
To fulfill its many legal responsibilities for
migratory bird conservation and to address the
mission, vision, and priorities stated above, the
Service will expand both the breadth and depth of
its Migratory Bird Program to address the full range
of species in need of conservation.
The Migratory Bird Program will work to
accomplish the following three overarching goals
which are stepped down into quantifiable long-term
goals and annual performance goals and measures
through the process established by the Government
Performance and Results Act (GPRA). These goals
flow from the Department of the Interior’s Strategic
Plan and the Fish and Wildlife Service’s GPRA
Implementation Plan (see Appendix 5).
Goal 1: Protect, restore, and manage
migratory bird populations to ensure their
ecological sustainability and increase their
socioeconomic benefits.
Goal 2: Protect, restore, and manage
migratory bird habitats to ensure long -term
sustainability of all migratory bird
populations.
Goal 3: Improve hunting, birdwatching, and
other outdoor bird-related experiences and
opportunities, and increase awareness of the
value of migratory birds and their habitats
for their intrinsic, ecological, recreational
and economic significance .
To work on behalf of the wild is to
restore culture.
Gary Snyder
Breeding from Maine north to the arctic, the Common Eider, like
other sea ducks, is one of the least well-studied species of
waterfowl. It is particularly vulnerable to oil spills because it
congregates in large, dense, flocks during winter, molting, and
migration. /Glen Smart
8
III. Implementation Strategies
The Migratory Bird Program will achieve its vision,
priorities, and goals by implementing strategies in
the following five areas of responsibility:
A. Population Monitoring, Assessment, and
Management
B. Habitat Conservation
C. Permits and Regulations
D. Consultation, Cooperation, Communication
E. Recreation
In addition, other programs of the Service,
including the National Wildlife Refuge System,
Endangered Species, International Affairs, and
Fisheries and Habitat Conservation programs are
committed to helping achieve Migratory Bird
Program goals though their own strategic
contributions (see Appendix 6).
A. Population Monitoring, Assessment, and
Management
Information on the population status and trends of
migratory birds is required to comply with
mandates in the various migratory bird treaties and
other legislation (e.g., the Migratory Bird Treaty
Act and the Fish and Wildlife Conservation Act).
Because most migratory birds range widely over
their annual cycles, an accurate assessment of
status, including distribution, population
abundance, and trends, requires long-term
monitoring over broad geographic scales — regional,
national, continental, and range-wide. Monitoring is
also needed to evaluate the effects of management
and conservation activities and human and
environmental factors on bird demographics and
distribution. The Service, other federal and state
agencies, and non-governmental organizations
conduct surveys that greatly contribute to
understanding bird populations. The Service has the
added responsib ility for providing an international
perspective to migratory bird assessment and
management.
The Migratory Bird Program has come close to
fulfilling this responsibility for some species of
waterfowl, a group for which broad-scale
monitoring programs have been in place for many
years. However, information is insufficient for
many other migratory birds, hindering the Service’s
ability to clearly determine population status and
reasonably predict the outcome of management and
conservation activities and environmental changes.
With its partners, the Service will implement,
coordinate, and facilitate robust, sustainable range-wide
surveys, and develop and improve monitoring
objectives and protocols necessary to assess
migratory bird abundances, distributions, trends,
causes of population conditions, and responses to
management and conservation activities.
Strategies for Monitoring:
A-1: Establish clear, quantifiable, and measurable
objectives for all survey and monitoring projects
undertaken or funded by the Migratory Bird
Program.
A-2: Complete a review of all Service supported
migratory bird surveys as a first step toward
identifying gaps, reducing redundancy, and
increasing efficiency.
A-3: Evaluate the design and operation of Service
supported migratory bird surveys relative to
objectives, and institute improvements or
discontinue surveys where appropriate.
A-4: Facilitate periodic, independent evaluations of
survey objectives, designs, operations, data
management, and analyses and reporting of survey
and assessment information, including critiques of
data coverage and quality, for all Service supported
migratory bird surveys.
A-5: Work with partners to develop and implement
statistically rigorous surveys and range-wide
monitoring programs for Birds of Management
Concern.
A-6: Establish formal, periodic consultatio n
processes with the states, flyway councils, and other
partners to determine regional and national priority
survey, monitoring, and management issues for
game and nongame migratory birds.
A-7: Provide private and public land managers
with technical assistance in selecting and
implementing appropriate bird survey and
monitoring techniques.
9
Strategies for Analytical Support and Information
Dissemination:
A-8: Increase capabilities for analytical support,
including survey design, data storage and
management, and analysis.
A-9: Create a dynamic, user-friendly information
and communication system to provide universal
access to survey data and analysis.
A-10: Report regularly on the status and trends of
bird populations based on information derived from
monitoring and research programs.
Strategies for Research:
A-11: Support research aimed at improving the
effectiveness and efficiency of monitoring
protocols, increasing power, precision and accuracy
of analyses, and expanding the availability and
utility of data.
A-12: Support range-wide research on factors that
directly affect migratory bird populations , such as
disease, predation, competition, brood parasitism,
environmental factors, and human-caused mortality.
A-13: Support range-wide research on factors that
affect bird populations through reducing habitat
quality and quantity, such as invasive species,
agricultural and other land use practices, and habitat
fragmentation.
A-14: Evaluate the effectiveness of management
actions and develop or refine best management
practices for migratory birds using an adaptive
management framework.
Strategies for Population Management:
A-15: Work with other nations, flyways, and bird
conservation initiatives to develop explicit,
unambiguous management objectives for Birds of
Management Concern.
A-16: Within an adaptive management framework,
undertake conservation and management actions,
consistent with bird conservation plans, to achieve
desired abundance levels or to reintroduce desired
species.
A- 17: Provide federal land management agencies,
states, and other land and water management
partners with technical support necessary to
undertake conservation and management actions
consistent with bird conservation plans.
A.18: Periodically review and adjust desired
population levels and objectives based on the
results of research, monitoring, and assessment.
A-19: Based on valid scientific data, reduce to
acceptable levels the abundances of migratory bird
species that create economic and ecological damage
and human health and safety concerns.
A-20: Identify and implement actions to respond to
threats to migratory birds from diseases and
invasive species, including alien wildlife.
A-21: Support efforts by the USGS National
Wildlife Health Center and other partners to
identify, study, and address traditional and
emerging bird disease problems such as botulism,
avian cholera, Newcastle disease, and West Nile
virus.
A-22: Implement and improve surveys to measure
subsistence harvest of migratory birds in Alaska,
and conduct appropriate analyses to assess likely
population impacts of that harvest.
The Swainson’s Hawk migrates over 6,000 miles (10,000 km)
every spring and fall between its North American breeding
grounds and South American wintering grounds . It is threatened
by habitat destruction, a reduction in its prey, and pesticide use.
/Karen Hollingsworth
10
B. Habitat Conservation
Protection, restoration, and enhancement of
terrestrial, aquatic and marine habitats, landscapes,
and seascapes are crucial to restore and sustain
migratory bird populations. Since its inception, the
Service has placed a premium on providing high
quality habitats for migratory birds, and
traditionally the National Wildlife Refuge System
and the Partners for Fish and Wildlife Programs
have been the cornerstones of this effort. In
addition, the Migratory Bird Program administers
national and international programs that implement
the North American Wetlands Conservation Act,
Neotropical Migratory Bird Conservation Act, and
the Migratory Bird Hunting and Conservation
Stamp Act. The Migratory Bird Program also
supports habitat joint ventures, which are regional,
landscape-oriented public -private partnerships
dedicated to conserving habitat for birds. Together,
these programs serve as catalysts for habitat
conservation and management throughout the
hemisphere. The contribution of private
landowners, state and other federal agencies, tribes,
non-profit organizations, corporations, and
academia to bird habitat conservation is essential to
meet migratory bird goals and objectives and,
through these programs, the Service works closely
with these partners.
Despite the great successes of these and other
Service habitat programs, many migratory bird
habitats remain imperiled. The Migratory Bird
Program will continue to develop national and
international partnerships to improve and expand
efforts to address these threats. Integral to this effort
is the development of scientific tools such as
modeling and geographic information systems that
integrate information on habitat and landscape
conditions with demographic data to produce
biologically-based landscape designs that meet the
needs of multiple species. By developing these tools
and increasing the technical assistance capabilities
of the Migratory Bird Program, the Service and its
partners can more effectively protect, restore, and
manage sustainable habitats for migratory birds.
Strategies for Biological Planning:
B-1: Work with partners range-wide to establish
habitat conservation objectives for Birds of
Management Concern through existing bird
conservation planning efforts.
B-2: Work with partners range-wide to integrate
migratory bird population and habitat data using
biologically-based geospatial planning tools to
create sustainable landscape designs for Birds of
Management Concern.
Strategies for Conservation Delivery:
B-3: Protect, restore and manage priority
terrestrial, aquatic , and marine habitats for birds
through the North American Wetlands
Conservation Act, Neotropical Migratory Bird
Conservation Act, Migratory Bird Hunting and
Conservation Stamp Act, and other appropriate
funding opportunities.
B-4: Give priority in grant and other funding
programs to projects that are designed to achieve
population and habitat objectives stated in bird
conservation plans and sustainable landscape
designs for Birds of Management Concern.
B-5: Participate in promotion, delivery, and
evaluation of non-Service habitat conservation
programs (e.g., U.S. Department of Agriculture’s
Conservation Reserve and Wetland Reserve
Program and the National Oceanic and Atmospheric
Administration’s National Marine Sanctuary
Program) that have the potential to affect the
quantity and quality of migratory bird habitat.
Strategies for Technical Assistance:
B-6: Coordinate with other Service habitat
programs (e.g., Endangered Species, National
Wildlife Refuge System, and Fisheries and Habitat
Conservation Programs) by communicating bird
population and habitat requirements to maximize
the benefits of these programs to migratory birds, as
required by Executive Order 13186 (see Appendix
6).
B-7: Provide technical assistance to Service field
stations and private and public partners on the most
effective protection, restoration and management
practices for migratory bird habitats.
B-8: Coordinate with public and private partners
that manage resources, such as agricultural land,
timber, grasslands, fisheries, and energy, by
communicating migratory bird requirements to
minimize the adverse impacts and maximize the
benefits of these programs to migratory birds.
11
Strategies for Habitat Assessment:
B-9: Work with partners to track changes in
migratory bird habitats across the entire ranges of
Birds of Management Concern.
B-10: Work with partners to coordinate population
monitoring with habitat monitoring, where
necessary, to develop sustainable landscape designs
for Birds of Management Concern.
B-11: Promote research to better assess landscape
changes and their impacts on Birds of Management
Concern at local, regional, and continental scales.
C. Permits and Regulations
Under the authorities of the Migratory Bird Treaty
Act and the Bald and Golden Eagle Protection Act,
the Service regulates the take of migratory birds for
hunting, rehabilitation, preventing depredation,
scientific collection, religious use, and other
purposes. Regulating take is a primary and
traditional Service activity that uses monitoring and
assessment information to manage migratory bird
populations. Overall, the Service’s challenge is to
balance the take of migratory birds with
international, national, and regional commitments
to conserve them.
Each year the Service conducts a well-defined cycle
of procedures and events, including public
consultation, which results in rules governing
annual sport and subsistence harvest for migratory
game bird species. For other direct take activities,
the Migratory Bird Program issues thousands of
permits that regulate the number and species of
birds that can be taken. Permits provide a means to
balance use and conservation, and allow the Service
to monitor activities to determine how they affect
migratory birds. The Service will continue to
improve the hunting and permits regulations
processes to better serve migratory birds and the
public. For example, through Adaptive Harvest
Management the Service applies the best available
science to provide hunting opportunities consistent
with established harvest objectives, while
considering the status and long-term conservation
of migratory game birds. The Service’s Law
Enforcement program also plays a critical role in
ensuring that migratory bird hunting and other
forms of take are conducted within the bounds of
the law.
The Migratory Bird Program also works with other
Service programs in the review, consultation, and
permitting process for federal land management
activities and for private activit ies requiring federal
permits and licenses. These programs work together
to conserve wildlife in accordance with laws, while
streamlining the permitting process to help the
public.
Executive Order 13186, Responsibilities of Federal
Agencies to Protect Migratory Birds directs federal
agencies whose actions have a measurable negative
impact on migratory bird populations to develop
Memoranda of Understanding with the Service to
promote the conservation of migratory birds. This
Order will have important implications to migratory
bird conservation in the coming years.
Strategies for Permits:
C-1: Implement actions outlined in the Service’s
document Leaving a Lasting Legacy: Permits as a
Conservation Tool to streamline the migratory bird
permit program, provide better customer service,
and support conservation (see Appendix 7).
C-2: In cooperation with partners, develop and
implement biologically sound permits, regulations,
policies, and procedures to effectively manage and
assess the take of migratory birds, while decreasing
the administrative burden for permit applicants.
C-3: Implement the recommendations in the
Service’s Permits Workload Analysis to provide
resources to meet customer needs.
Strategies for Hunting Regulations:
C-4: Continue to implement and improve an
objective, streamlined process for establishing
annual hunting regulations and strengthen the
working relationships with flyway councils and
individual states.
C-5: Enhance the use of Adaptive Harvest
Management as an effective approach to managing
migratory game bird harvests.
C-6: Continue to provide an effective forum for
public review and comment during the development
of annual hunting regulations.
12
C-7: Work with the Alaska Migratory Bird Co-management
Council to provide for regulated
spring and summer subsistence harvest of migratory
birds consistent with bird conservation goals,
remaining cognizant of the desires of other
stakeholders and user-groups.
C-8: Work with Native American tribes to improve
the process for establishing annual hunting
regulations.
Strategies for Other Legal Compliance:
C-9: Develop and implement Memoranda of
Understanding with other federal agencies to
promote bird conservation under Executive Order
13186 through adoption of processes and measures
that avoid or minimize the negative impacts of
agency actions on migratory birds.
C-10: Work with the Service’s Office of Law
Enforcement and state and tribal law enforcement
offic ials to ensure compliance with the laws and
international conventions applicable to migratory
birds.
D. Consultation, Cooperation, and
Communication
The Migratory Bird Program works with partners
throughout the ranges of migratory birds — at the
local, state, regional, national, and international
levels — to achieve a biologically based, landscape-oriented
approach to migratory bird conservation.
The Migratory Bird Program is committed to
strengthening its tools of consultation, cooperation,
and communication to increase and energize its
partnerships. The Migratory Bird Program supports
habitat joint ventures which are regional, landscape-oriented
partnerships working to conserve habitat
for birds in North America. Through species joint
ventures the Migratory Bird Program cooperates
with international partners to answer biological and
ecological questions regarding individual waterfowl
species or populations. The Service works closely
with the flyway councils which deal with a variety
of migratory bird management issues at the state,
provincial, and flyway scale s, including the
development of hunting regulations.
The Migratory Bird Program serves as a focal point
for developing and implementing regional, national,
and continental bird conservation plans, including
the North American Waterfowl Management Plan,
Partners in Flight Landbird Conservation Plans, the
U.S. Shorebird Conservation Plan, the North
American Waterbird Conservation Plan, and
migratory game bird management plans for
waterfowl, woodcock, and doves developed by the
flyway councils. These plans present population
and habitat goals for priority species and have been
developed by coalitions of federal, state, and
provincial agencies, tribal entities, foreign
governments, non-governmental organizations,
industry, academia, and private individuals.
The Service also supports the North American Bird
Conservation Initiative (NABCI) which provides a
forum for state, regional, national, and international
organizations and bird initiatives to coordinate their
efforts to increase resources and expand
partnerships to deliver integrated bird conservation.
NABCI is facilitating partners’ efforts to integrate
bird conservation plans , develop comprehensive,
sustainable landscape designs for birds, and carry
out all-bird conservation through regional
partnerships, such as joint ventures. For example,
NABCI developed and approved Bird Conservation
Regions (BCRs) as ecological units within which
planning and implementation can occur. The
Service will continue to support partnerships at
every scale that advance an integrated and
comprehensive approach to bird conservation.
Strategies for Coordination:
D-1: Actively support and participate with partners
in developing, implementing, and evaluating bird
conservation plans at appropriate geographic scales.
D-2: Coordinate bird conservation planning efforts
with other ongoing planning efforts, including State
Comprehensive Wildlife Conservation Plans.
D-3: Work with partner agencies and organizations
to obtain additional funding for all-bird
conservation and to leverage resources towards
agreed upon goals identified in bird conservation
plans and sustainable landscape designs.
D-4: Coordinate bird planning and implementation
efforts with Canada, Mexico, Central and South
America, the Caribbean, and other nations that
share migratory birds.
13
D-5: Support NABCI efforts to facilitate and
coordinate integrated bird conservation planning
and implementation at the international, national,
regional, and state levels.
D-6: Expand existing or create new habitat joint
ventures to encompass all bird habitats (terrestrial,
aquatic , and marine) in North America, and initiate
and strengthen similar partnerships beyond North
America.
D-7: Provide technical assistance to partner
agencies and organizations through federal project
reviews and other means to integrate migratory bird
conservation objectives into their project planning
and implementation.
D-8: Coordinate and communicate with the USGS
Biological Resources Discipline to obtain directed
research and development information and
technical assistance on migratory birds and their
habitats and factors affecting them.
D-9: Strengthen range-wide migratory bird
management by improving international
partnerships among Migratory Bird Treaty Act
nations and other nations within flyways used by
migratory birds.
Strategies for Consultation and Technical
Assistance:
D-10: Assist other nations and U.S. partners in
assessing the status of migratory birds, identifying
important habitats, and developing strategies to
conserve shared resources through national and
international grant programs and direct technical
assistance.
D-11: Provide technical assistance to other Service
programs (e.g., National Wildlife Refuges,
International Conservation, Endangered Species
and Fisheries and Habitat Conservation) to increase
their ability to meet trust responsibilities for
migratory bird conservation.
D-12: Provide information to private landowners to
assist them in protecting and restoring bird
populations and habitats on a voluntary basis.
D-13: Provide technical assistance to industry on
ways to avoid or minimize impacts of
communications towers, wind turbines, fishing
bycatch, and other hazards to migratory birds and
recognize positive industry efforts that result in
increased conservation (e.g., communications
industry).
Strategies for Communications and Outreach:
D-14: Review and expand existing and develop
new products, programs, and venues that increase
awareness of the value of conserving migratory
birds and their habitats (e.g., International
Migratory Bird Day and Urban Conservation
Treaties for Migratory Birds).
D-15: Promote and expand existing programs that
increase awareness of the value of comprehensive,
integrated approaches to bird conservation that
conserve all priority bird species across geopolitical
boundaries, taxonomic groups, and sociocultural
divides.
D-16: Increase sales of the Migratory Bird Hunting
and Conservation Stamp (i.e., Federal Duck Stamp)
by expanding public awareness of this program,
beyond its traditional hunting constituency, as the
most direct way for citizens to protect migratory
bird habitat.
D-17: Increase student and school participation in
the Junior Duck Stamp Program and strengthen its
educational content by incorporating its curriculum
into national and state science and art education
standards.
D-18: Increase involvement of organizations and
individuals representing ethnic and culturally
diverse communities in bird conservation efforts.
D-19: Take actions to ensure the nation’s students
are knowledgeable about the conservation needs of
migratory birds and to instill stewardship of natural
resources by promoting awareness, appreciation,
and knowledge of birds through such programs as
Shorebird Sister Schools and Flying WILD, which
is sponsored by the President’s Council for
Environmental Education.
14
E. Recreation
Millions of Americans enjoy observing,
photographing, and hunting migratory birds in their
natural habitats. The Service is committed to
providing U.S. citizens with quality outdoor
recreational opportunities involving migratory birds
by conserving these species and their habitats. By
working with the National Wildlife Refuge System,
the Migratory Bird Program is helping to improve
migratory bird recreation on national wildlife refuge
and other Service lands. Through other
partnerships, the Migratory Bird Program will
promote and improve bird-related recreational
opportunities for people on other public and private
lands.
Providing the public with opportunities for quality
recreation promotes a strong conservation ethic. By
participating in quality recreation involving
experiential education (e.g., nature studies and work
on conservation projects) and individual reflection
(e.g., birdwatching and hunting) citizens develop a
deep sense of wonder and appreciation for the
natural world as well as a sense of responsibility for
protecting and restoring the earth’s community of
life for future generations.
Strategies for Improving Recreational
Opportunities:
E-1: Work with the National Wildlife Refuge
System to actively implement the provisions of the
Refuge Improvement Act to improve the quantity
and quality of migratory bird-related recreation on
National Wildlife Refuge System lands, as
compatible with refuge goals and authorizing
legislation.
E-2: Actively support state efforts to provide bird-related
recreation through the Service’s Federal
Assistance programs, including the State Wildlife
Grants program.
E-3: With partners, identify and implement projects
and programs to improve the quality of hunting,
birdwatching, and other recreational opportunities
related to migratory birds.
Strategies for Increasing Public Awareness:
E-4: With partners, identify and promote
recreational opportunities associated with migratory
birds, such as hunting and birdwatching.
E-5: Open dialogs with federal, regional, state and
local managers of land and water resources to
encourage recreational opportunities related to
birds.
E-6: Work with birding industries (e.g., optics
manufacturers and birdseed companies),
rehabilitators, and other stakeholders to create new
partnerships and venues that increase public
awareness of non-consumptive bird recreation and
bird conservation (e.g., birding festivals, trails, and
conferences).
E-7: Maintain and expand existing conservation
partnerships with hunters and the hunting industry
to increase awareness of hunting opportunities and
the importance of bird conservation.
U.S. Fish and Wildlife Service
When we see land as a community to
which we belong, we may begin to use it
with love and respect.
Aldo Leopold
Megan Durham/U.S. Fish and Wildlife Service
15
Acknowledgments
Gratitude goes to the many people who contributed to the development of this strategic plan including more
than 200 commenters and the 65 Service employees and partners who participated in the Migratory Bird
Conservation Forum at the National Conservation Training Center (NCTC) in Shepherdstown, West
Virginia on January 20-22, 2004. The writing team for this strategic plan included Roxanne Bogart, John
Christian, Bob Blohm, Cyndi Perry, Seth Mott, Bob Ford, and Brad Andres, with editorial assistance from Steve
Lewis and Scott Schwenk. Thanks to members of the Migratory Bird Strategic Plan Steering Committee for
leading the way for migratory bird conservation in the twenty-first century: Paul Schmidt, Brian Millsap,
David Smith, Doug Alcorn, John Christian, Paul Gertler, Roxanne Bogart, Phil Million, Greg Knadle, Anne
Hoover, and Chris McKay. Special thanks to Genevieve Pullis for helping to organize and coordinate the
Conservation Forum. Thanks to Janet Ady and her staff at NCTC and David J. Case for their help in
making the Conservation Forum possible. Gratitude goes to members of Comment Review Team,
especially Genevieve Pullis and Shauna Hanisch. Special thanks to Beth Andujar and Harish Bellary for
helping to create the migratory bird strategic plan web pages, e-mail user groups, and comments database.
Thanks to the many staff of the Migratory Bird Program throughout the country who provided valuable
comments and helped pull together information for this document. Special thanks to Scott Weidensaul for
lifting our spirits at the Conservation Forum and for crafting an inspirational vision worthy of the
remarkable species we all seek to conserve.
Though absent from much of its historic range, the Whooping Crane has been brought back from
the brink of extinction through decades of research and management. /John Christian
16
Introduction to Appendices
The following appendices provide additional information on the Service’s Migratory Bird Program and links
to important resources that explain and guide the Program’s conservation efforts. Readers are encouraged to
visit the following site for more information: http://migratorybirds.fws.gov/mbstratplan/mbstratplan.htm
Appendix 1: Organization and Budget Structure of the Migratory Bird Program
The Service’s Migratory Bird Program has primary responsibility for the conservation and management of
migratory birds and their habitats. Essential staff and funding support come from other parts of the Service
that deal routinely with this trust resource, including the National Wildlife Refuge System, Law Enforcement,
International Affairs, Fisheries and Habitat Conservation, and Endangered Species.
The leader of the Migratory Bird Program is the Assistant Director for Migratory Birds and State Programs
located in Washington, D.C. There are four program components under the Assistant Director: the Division of
Migratory Bird Management (DMBM), the Division of Bird Habitat Conservation (DBHC), the Division of
Federal Aid, and the Office of Aviation Management. The Migratory Bird Permit Program is managed by
DMBM. The Federal Duck Stamp Office is managed by DBHC. The primary functions of the Washington
Office staff include legislative, regulatory, budget and policy development, and program guidance.
The Migratory Bird Program is implemented on the ground by the Assistant Regional Directors for Migratory
Birds and State Programs through seven Regional Offices and associated field stations with programs for
Migratory Bird Management and Joint Ventures. Research support to the Migratory Bird Program within the
Department of Interior is provided by the Biological Resources Discipline of the U.S. Geological Survey
located in Reston, Virginia and associated regional offices, science centers, and cooperative research units.
The Migratory Bird Program budget structure contains five components for appropriations and execution
processes referred to as subactivities: (1) Conservation and Monitoring, (2) Permits, (3) North American
Waterfowl Management Plan (Joint Ventures), (4) North American Wetlands Conservation Act and (5)
Neotropical Migratory Bird Conservation Act. Annual budgets are structured along subactivity lines. Each
component of the budget is justified and allocated independently of the other.
Regional allocation estimates for each subactivity are determined following decisions by the Office of
Management and Budget on the President’s Budget request level. Budget allocation estimates are displayed in
the Congressional District Report by state and congressional district and published as part of the annual
President’s Budget Justification (Green Book).
Visit the following link to see the Fiscal Year 2005 Migratory Bird Budget Justification:
http://budget.fws.gov/fy%202005%20GB/0602%20mb.pdf
17
Appendix 2: Public Comment Process and Evolution of the Migratory Bird Strategic Plan
· The draft “Blueprint” document underwent a two-month public review from August to October 2003.
· Comments were solicited during Director William’s speech at the annual meetings of the International
Association of Fish and Wildlife Agencies in September 2003, in letters to state directors, through e-mails
to the bird conservation community, and on the strategic plan webpage on the Service’s web site.
· A nine-person Comment Review Team comprised of Service employees from various Regions and
programs was established to review and summarize comments received during the partner consultation.
· The consultation resulted in 217 comments received from Service employees and partners.
· Breakdown of affiliations of commenters:
o 29% non-governmental organizations
o 25% private citizens
o 15% state agencies
o 12% other Federal agencies
o 11% Service employees
o 5% for-profit organizations
o 3% academia
· A majority of the commenters expressed appreciation for the development of a strategic plan, thought the
plan was well-written and comprehensive, and showed support for the plan’s vision and strategies.
· Of the 25 states that commented, 23 explicitly stated support, agreement, or appreciation for the plan and
none expressed lack of support.
· Many states wished for more detailed objectives, continued emphasis on partnerships, and expanded
Service leadership in migratory bird conservation.
· Many commenters felt that specific direction in the form of objectives and priorities was missing from the
plan.
· Commenters expressed differences of opinion about what should be the Service’s focus in migratory bird
conservation (e.g., ecological vs. utilitarian values and game vs. nongame).
· Many commenters were concerned that adequate funding is not available to implement the plan and many
stated a need to develop ways for non-hunters to provide financial support to migratory bird programs.
· Five high priority areas emerged from the comments:
o Protect and restore bird habitats (#1)
o Maintain viable bird populations
o Conduct science and research
o Provide leadership for all-bird conservation
o Stimulate and facilitate partnerships
· In January 2004 at the National Conservation Training Center, the Migratory Bird Program sponsored a
Conservation Forum attended by 65 Service employees and partners to discuss the draft “Blueprint.”
To see a summary of partner responses, visit http://migratorybirds.fws.gov/mbstratplan/responses.htm
18
Appendix 3: Primary International Conventions and Major Domestic Legislation for the
Conservation of Migratory Birds and their Habitats in the United States
_______________________________________________________________________
YEAR AUTHORITY
_______________________________________________________________________
1900 Lacey Act (Amended 1981)
1913 Weeks-McLean Law (Migratory Bird Conservation Act 1913)
1916 Convention for the Protection of Migratory Birds (Canada)
1918 Migratory Bird Treaty Act
1929 Migratory Bird Conservation Act
1934 Migratory Bird Hunting and Conservation Stamp Act (Duck Stamp Act)
1936 Migratory Bird Convention with Mexico (amended 1972)
1940 Pan American (or Western Hemisphere) Convention
1940 Bald Eagle Protection Act
1956 Waterfowl Depredations Prevention Act
1961 Wetlands Loan Act of 1961 (Amended 1969, 1976)
1972 Migratory Bird Convention with Japan
1972 Convention on Wetlands of International Importance Especially as Waterfowl Habitats
(RAMSAR)
1973 Endangered Species Act (ESA)
1973 Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES)
1976 Migratory Bird Convention with the Union of Soviet Socialist Republics
1978 Antarctic Conservation Act
1980 Fish and Wildlife Conservation Act (Amended 1988, 1989)
1982 Convention on Conservation of Antarctic Living Marine Resources
1986 Emergency Wetlands Resources Act
1987 Driftnet Impact Monitoring, Assessment, and Control Act of 1987
1989 North American Wetlands Conservation Act (NAWCA)
1990 Coastal Wetlands Planning, Protection and Restoration Act
1992 Wild Bird Conservation Act
2000 Neotropical Migratory Bird Conservation Act
2001 Responsibilities of Federal Agencies to Protect Migratory Birds (Executive Order 13186)
________________________________________________________________________
To see an overview of primary authorities, visit
http://migratorybirds.fws.gov/mbstratplan/Legalauthamend.pdf
To see a list of secondary authorities, visit
http://migratorybirds.fws.gov/mbstratplan/LegalAuthorities.pdf
19
Appendix 4: Birds of Management Concern
Birds of Management Concern (BMC) are a subset of the species protected by the Migratory Bird Treaty Act
(see 50 CFR 10.13) which pose special management challenges because of a variety of factors (e.g., too few,
too many, conflicts with human interests, societal demands). The Migratory Bird Program will place priority
emphasis on these birds during the next ten years. The BMC list of 412 species, subspecies, or populations
comprises five categories of migratory birds:
(1) birds listed as endangered or threatened under the Endangered Species Act (62),
(2) nongame birds that have been determined to be of conservation concern due to declining populations and
other factors (as published in Birds of Conservation Concern 2002; 247 including all National, Regional, and
Bird Conservation Region species),
(3) game birds that are below desired condition* (35),
(4) game birds that are at or above desired condition** (60), and
(5) birds that are considered overabundant in part or all of their range and thus potentially damaging to natural
ecosystems or human interests (8).
The BMC list will be updated periodically to reflect changes in the status of these species or populations.
Performance goals and measures have been developed that address the status of these species, subspecies, or
populations.
To see the list of Birds of Management Concern, visit
http://migratorybirds.fws.gov/mbstratplan/GPRAMBSpecies.pdf
*Game Birds Below Desired Conditions (GBBDC) are species whose populations are below long-term
averages or management goals, or for which there is evidence of declining population trends.
**Game Birds Above Desired Conditions (GBADC) are species whose populations are at or above long-term
averages or management goals, or for which there is evidence of increasing population trends.
20
Appendix 5: Department of the Interior Strategic Plan and GPRA goals
The Government Performance and Results Act (GPRA) mandates that all federal agencies set long-term and
annual goals, measure performance, and report on the degree to which goals are met. The three overarching
goals of the Migratory Bird Program’s strategic plan flow from the Department of the Interior (DOI) Draft
Strategic Plan for 2004-2008 and the Draft Fish and Wildlife Service Operational Performance Plan.
The Migratory Bird Program supports the following goals in the DOI strategic plan:
(1) Resource Protection – Biological Communities, Strategy 2, targeted at sustaining biological communities
on DOI managed and influenced lands and waters;
(2) Resource Protection – Biological Communities, Strategy 3, targeted at increasing information and
knowledge necessary for decision making;
(3) Resource Protection – Cultural and Heritage Resources, Strategy 1, targeted at increasing the knowledge
base of cultural and heritage resources managed by DOI; and
(4) Recreation Strategy 1 targeted at increasing the quality of recreational activities involving DOI managed
resources, and Strategy 2 targeted at providing effective interpretation and education programs.
The three overarching goals of A Blueprint for the Future of Migratory Birds are further stepped down into
quantifiable long-term goals and annual performance goals and measures. The Service will report on progress
made in achieving these goal and performance measure targets which are available at the following website
links:
To see the Migratory Bird Management Division’s GPRA goals, visit
http://migratorybirds.fws.gov/mbstratplan/MBFY2004GPRA.pdf
To see the Division of Bird Habitat Conservation’s GPRA goals, visit,
http://migratorybirds.fws.gov/mbstratplan/DBHCFY2004GPRA.pdf
21
Appendix 6: Summary of the Director’s Order for Migratory Bird Conservation
In March 2004, a Director’s Order (DO) was issued to provide guidance for Service programs on the
management and conservation of migratory birds. This DO was developed in accordance with Executive
Order (EO) 13186, Responsibilities of Federal Agencies to Protect Migratory Birds. The purpose of the DO is
to minimize the potential adverse effects of migratory bird take, with the goal of striving to eliminate take,
while implementing our mission.
Executive Order 13186, signed on January 10, 2001, directs federal agencies whose actions could have a
measurable negative impact on migratory bird populations to develop Memoranda of Understanding (MOUs)
with the Service to promote conservation of migratory birds. In addition, the EO calls on federal agencies to
take reasonable steps that include restoring and enhancing habitat, incorporating migratory bird conservation
into planning processes, promoting research and information exchange, providing training and visitor
education, and developing partnerships beyond agency boundaries.
The DO describes how the Service will implement the EO 13186 with respect to its own programs and lists
specific strategies for individual programs. Continued intra-Service coordination is essential to maximize the
benefits of these programs to migratory bird conservation. The Service is developing a web page that will
provide an overview of related activities and individual program strategies that the Service will undertake to
fulfill its responsibilities under the DO.
The Migratory Bird Program strategies laid out in this plan, coupled with the DO strategies from other Service
programs, constitute the Service’s overall commitment to migratory bird conservation.
To see Executive Order 13186 and the Director’s Order, visit
http://migratorybirds.fws.gov/mbstratplan/EO.pdf
Appendix 7: Leaving a Lasting Legacy: Permits as a Conservation Tool
As authorized by the Migratory Bird Treaty Act, the Service issues permits to qualified applicants for the
following types of activities: falconry, raptor propagation, scientific collecting, special purposes (e.g.,
rehabilitation, education, migratory game bird propagation, and salvage), take of depredating birds, taxidermy,
and waterfowl sale and disposal. Migratory bird permit policy is developed by the Division of Migratory Bird
Management and the permits themselves are issued by the Regional Bird Permit Offices. The regulations
governing migratory bird permits can be found in 50 CFR part 13 (General Permit Procedures) and 50 CFR
part 21 (Migratory Bird Permits).
In addition to permits issued by the Migratory Bird Program, the Service also issues permits through its
Endangered Species, International Affairs, and Law Enforcement programs. In 2002, the Service developed a
vision and action plan, Leaving a Lasting Legacy: Permits as a Conservation Tool, for its various permit
programs to promote long-term conservation of animals, plants, and their habitats, and encourage joint
stewardship with others. This document can be viewed at:
http://library.fws.gov/IA_Pubs/permits_legacy02.pdf, or go to http://permits.fws.gov, for more information on
the Service’s permit program.
U.S Fish and Wildlife Service
Migratory Birds and State Programs
4401 North Fairfax Drive, MBSP-4000
Arlington, Virginia 22203
http://birds.fws.gov/